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THE  CITY  MANAGER 


NATIONAL  MUNICIPAL  LEAGUE   SERIES 

THE 

CITY  MANAGER 

A  NEW  PROFESSION 

BY 

HARRY  AUBREY  TOULMIN,  Jr. 

J.D.,F.S.S. 
Author  of  "Social  Historians" 


NEW  YORK  AND  LONDON 
D.  APPLETON  AND  COMPANY 

1917 


1410 


Copyright,  1915,  by 
D.  APPLETON  AND  COMPANY 


PRINTED  IN  THE  UNITED  STATES  OF  AMERICA 


C5 


To 

HON.  JAMES  M.  COX 

Conspicuous  Leader 

in 

Constructive  Citizenship 

This  Narrative  of 

Progress 

is 
Dedicated 


r5 


°»  INTRODUCTION 

The  city  manager,  or  as  some  who  prefer  to  sug- 
gest the  continuity  of  the  development  in  the  title 
call  it,  the  commission-manager  form  of  govern- 
ment, has  achieved  a  wide  reputation  in  a  very  short 
time.  To  some  this  seems  surprising,  but  the  rea- 
^  sons  are  obvious  to  those  who  have  followed  closely 
^  the  development  of  municipal  charter  reform :  It 
represents  the  product  of  many  years  of  thoughtful 
consideration  of  the  whole  subject  and  of  the  in- 
creased appreciation  of  the  dignity  and  power  of  the 
worth  of  city  government  and  the  need  for  experts 
in  administering  it.  A  generation  ago  the  people 
were  indifferent  to  the  importance  of  municipal  gov- 
ernment. They  have  gradually  but  none  the  less 
. '  surely  been  awakened  from  their  lethargy  and  are 
-x  beginning  to  appreciate  that  city  government  is  one 
of  the  great  factors  in  human  life  and  bids  fair  to 
become  even  a  greater  factor  during  coming  genera- 
tions. With  the  dawning  appreciation  of  the  im- 
portance of  municipal  government  came  an  appre- 
ciation of  the  fact  that  our  municipal  machinery  was 
hopelessly  involved  and  complicated  and  inadequate. 

vii 


viii  INTRODUCTION 

Then  began  the  movement  for  new  charters,  which 
has  run  a  varied  course,  but  has  really  had  a  very 
definite  single  purpose,  namely,  that  of  simplifica- 
tion, and  through  the  elimination  of  unnecessary 
machinery  and  the  unification  of  power  and  respon- 
sibility in  the  hands  of  a  single  board  of  conspicuous 
men  who  were  responsive  as  well  as  responsible  to 
the  electorate.  The  part  which  the  movement  for 
commission  government  has  followed  in  this  move- 
ment is  familiar  to  the  members  of  the  National 
Municipal  League  and  to  the  readers  of  its  Pro- 
ceedings, the  National  Municipal  Review  and  of 
the  National  Municipal  League  Series. 

This  form  of  government,  introduced  in  the 
storm-stricken  city  of  Galveston,  on  the  Gulf  of 
Mexico,  was  designed  to  prepare  the  American  mu- 
nicipal mind  for  the  next  important  step,  namely, 
that  of  concentrating  the  administration  of  the  city 
in  the  hands  of  a  qualified  expert  in  municipal  gov- 
ernment. Coincident  with  the  commission  govern- 
ment movement  was  the  awakening  of  public  inter- 
est in  municipal  affairs  and  the  movement  to  prepare 
the  American  municipal  citizen  to  demand  that  mu- 
nicipal offices  should  be  taken  out  of  politics  and  be 
open  to  those  who  were  willing  to  devote  their  lives 
to  municipal  service  and  who  had  demonstrated  their 
fitness  so  to  do. 


INTRODUCTION  ix 

Mr.  Toulmin's  volume  on  the  city  manager  ade- 
quately sets  forth  the  details  of  the  city  manager 
form  of  government  as  it  exists  in  a  score  of  our 
cities  and  how  it  is  actually  working  out  in  these 
communities.  As  a  citizen  of  Dayton,  as  an  inter- 
ested citizen  as  well  as  a  student,  he  has  had  ample 
opportunity  to  study  at  first  hand  the  city  manager 
form  of  government,  and  he  has  availed  himself 
of  the  opportunity.  Moreover,  he  had  had  the 
advantage  of  consultation  and  close  contact  with 
those  who  were  making  the  experiment.  The  re- 
sults of  his  study,  experience  and  observation  are 
embodied  in  this  volume,  which  we  believe  will 
form  not  only  an  important  addition  to  the  National 
Municipal  League  Series,  but  aid  in  the  development 
of  sound  public  opinion  upon  this  very  important 
question. 

Clinton  Rogers  Woodruff. 


CONTENTS 

CHAPTER  PAGE 

v  I.    Foreword         .        . 1 

'*II.     The  Old  Order 6 

III.  Preliminary  Plans 16 

IV.  The  Power  of  the  Electorate    ...  36 
^  V.    The  New  Commission 51 

-VI.    The  City  Manager 73 

VII.     The  Departments 98 

VIII.     Finance  Measures 123 

>  IX.    Education  of  Officials       ....  146 
X.    Attitude  of  Labor  and  Socialism  Toward 

the  City  Manager  Plan          .        .        .  155 
*  XI.    City  Manager  Statutes       .        .        .        .170 

XII.    Results 194 

XIII.  Various  Points  of  View      ....  223 

XIV.  Advantages  and  Disadvantages  .        .        .  255 
Appendix  A.     City  Government  by  Commission; 

a  Report  of  the  National  Municipal  League  268 
*- Appendix  B.     Cities  Under  the   City   Manager 

Plan,  June  I,  1914 281 

Appendix  C.     Some    Acid    Tests    of    City    Man- 
ager Government  from  the  First  Ninety  Days 

of  Operation 282 

Appendix  D.     Pledge  Card  and  Precinct  Card    .  287 

Appendix  E.     Bibliography 289 

Index 299 

xi 


LIST   OF   DIAGRAMS 


Staunton,  Va.,  Controlled  Executive  Plan 
Lockport,  New  York,  Proposal  . 
Old  Plan  in  Dayton  .... 
City  Manager  Plan,  Dayton,  Ohio 
Hickory,  N.  C,  City  Manager  Plan  . 
Springfield,  Ohio,  City  Manager  Plan 


PAGE 
20 

22 

53 

75 
88 

113 


THE  CITY  MANAGER 

CHAPTER   I 
FOREWORD 

Now  this  is  nothing  short  of  a  new  social  age,  a  new 
era  of  human  relationships,  a  new  stage  setting  for  the 
drama  of  life.  Woodrow  Wilson 

City  government  is  experiencing  a  civic  revolu- 
tion. We  have  run  suddenly  upon  a  novel  age 
where  well-tried  formulas  are  nil,  where  old  land- 
marks are  transformed  into  strange  beacon  lights, 
and  the  new  anchorage  we  all  seem  to  be  seeking 
is  yet  afar  off.  Revolution  in  municipal  govern- 
ment is  but  one  of  our  ventures  into  the  virgin 
land  of  untried  things.  The  seeking  of  the  truer 
and  the  cleaner  and  the  finer,  of  the  less  wasteful 
and  of  the  more  efficient,  is  the  advertisement  of 
our  national  restlessness.  The  failure  of  the  old 
has  stung  our  pride  into  a  pilgrimage  to  find  some- 
thing newer,  nobler,  more  satisfying  than  that  which 
the  old  government  could  give  with  its  incompe- 
tence, its  sloth,  its  extravagance.     This  discussion 


2  THE   CITY   MANAGER 

has  as  its  sole  excuse  the  object  of  presenting  a  part 
of  the  progress  of  our  recent  political  life. 

A  word  then  as  to  the  point  of  view. 

It  is  trite,  perhaps,  to  say  that  this  is  the  age  of 
specialists  and  professional  men.  Nevertheless, 
what  is  here  written  is  an  exposition  of  that  truism..- 
It  is  profoundly  believed  that  a  vast  part  of  a  city's 
business  must  be  run  by  a  man  experienced  in  mu- 
nicipal administration.  This  is  not  so  much  the 
dream  of  the  visionary  as  it  is  the  persuasion  of 
practical  minds  facing  the  glaring  facts  of  civic 
failures.  While  cities  do  not  go  into  the  hands  of 
a  receiver  as  easily  as  do  corporations  and  individ- 
uals, yet  the  same  bankrupt  condition  often  exists 
without  that  salutary  relief.  Professional  adminis- 
trators are  proposed  as  the  remedy  and  the  preven- 
tive. What  is  here  written  is  expository  of  the 
professional  idea  in  municipal  life,  its  method 
and  advantage  and  the  opportunities  open  to  its 
practice. 

The  church,  law,  medicine,  and  other  professions 
may  boast  of  professional  emoluments  and  rewards. 
This  newcomer  in  the  ranks  equals  any  one  of  the 
distinguished  predecessors  in  its  offer  of  startling 
opportunities  for  genuine  constructive  service  by  its 
personnel,  for  the  achievement  of  personal  repute, 
and  for  accomplishment  by  them  of  finer  things. 


FOREWORD  3 

We  are  about  to  learn  a  new  meaning  of  the  dignity 
of  public  service  and  acquire  a  new  conception  of 
civic  ethics.    To  this  end  we  will  direct  ourselves. 

All  goodness  in  government  is  achieved  by  evolu- 
tion, not  simply  by  invention.  The  original  systems 
of  municipal  government  will  often  be  referred  to 
herein  as  the  "old  order" ;  the  city  manager  plan 
with  all  its  attendant  progressive  features  and  ideals 
will  be  referred  to  as  the  "new  order."  Between 
the  two  is  no  hard  and  fixed  boundary  upon  which 
to  lay  your  finger  and  say  it  is  there,  and  to  the 
one  side  is  one  thing,  and  to  the  other  is  another. 
Those  things  produced  by  evolution  inevitably  have 
shadowed  beginnings  and  endings. 

So  it  is  in  municipal  government.  The  old  order 
was  first  a  rule  with  the  usual  mayor  and  council, 
often  composed  of  two  branches.  Then  Galveston 
popularized  the  commission  government  with  no 
mayor.  In  a  little  more  than  a  decade  we  saw 
many  pleasing  modifications  of  this  plan;  the 
process  was  slow,  but  the  leaven  was  at  work  in 
the  loaf.  Thus  matters  had  evolved  in  the  old 
order  up  to  nineteen  hundred  and  eleven. 

From  this  genesis  the  new  order  sprang.  The 
city  manager  plan  is  a  part  of  this  more  modern 
trend  of  thought.  Many  earnest  thinkers  are  per- 
suaded that  it  is  a  step  further  forward  toward  the 


4  THE   CITY   MANAGER 

realization  of  true  civic  greatness.  While  time 
alone  can  adequately  answer  this  question,  in  the 
meanwhile,  to  understand  the  import  of  it  and  the 
deep  significance  it  bears  upon  the  life  of  modern 
municipalities,  it  is  not  out  of  place  to  give  the 
plan  the  careful  thought  resultant  from  the  mature 
deliberation  which  it  deserves.  Throughout  what 
is  said  hereafter  it  will  be  understood  that  when 
no  reference  is  made  to  a  particular  charter,  when 
a  provision  of  some  charter  is  being  discussed,  it  is 
assumed  by  the  writer  that  it  is  a  part  of  the  instru- 
ment under  which  Dayton  (Ohio)  is  governed. 
This  is  done  for  the  reason  that  the  most  unique 
instrument  dealing  with  the  city  manager  is  the 
charter  of  Dayton,  and  the  discussion  of  the  city 
manager  plan  logically  hinges  about  the  advanced 
position  this  charter  assumes. 

One  word  as  to  the  history  of  this  movement. 
It  has  been  a  matter  of  comment  quite  frequently 
that  Europe  had  the  essence  of  the  plan  already  in 
effective  operation.  This  is  neither  literally  nor 
substantially  true.  The  idea  abroad  was  only  par- 
tially formulated  before  it  was  fully  developed  in 
this  country,  and,  in  fact,  still  remains  but  partially 
formulated  there.  All  credit  for  so  radical  an 
achievement  belongs  to  the  American  people  who 
actually  created  it.     A  full  analysis  and  discussion 


FOREWORD  5 

of  these  so-called  progenitors  are  set  forth  at  length 
in  the  later  part  of  this  sketch. 

A  final  word  in  passing.  So  far  as/this  exposi- 
tion of  the  city  manager  plan  of  city  government 
creates  an  interest  in  it  and  clarifies  the  discussion 
of  it  in  the  minds  of  the  people  who  vote  upon 
the  plan,  who  rule  by  and  under  the  provisions 
embodied  in  a  city  manager  charter,  who  will  be 
officials  charged  with  its  execution  and  success,  so 
far  will  this  narrative  justify  its  existence.  Useful- 
ness will  be  the  test  of  its  worth. 


CHAPTER    II 
THE  OLD  ORDER 

The  basis  of  our  political  systems  is  the  right  of  the 
people  to  make  and  to  alter  their  constitutions  of  govern- 
ment. George  Washington 

The  Indictment. — We  want  a  change.  American 
city  government  has  had  a  multitude  of  grievous 
charges  laid  at  its  door.  Numbers  of  these  accusa- 
tions were  unjust,  but  far  too  many  counts  of  the 
indictment  have  been  sustained.  Instituted  to  serve 
the  citizen,  too  often  has  the  city  organization  been 
the  harbinger  of  those  who  robbed  the  people  by 
their  corruption  and  inefficiency.  These  are  sting- 
ing charges  to  substantiate  against  our  institutions 
of  administration,  but  even  the  most  callow  enthusi- 
ast must  admit  the  fallacies  in  our  systems  of  mu- 
nicipal management.  Such  is  the  situation.  We 
must  face  it  and  conquer  it  and  alleviate  it.  Here, 
then,  follows  a  relation  of  the  most  advanced  rem- 
edy for  these  evils  in  the  shape  of  the  city  manager 
plan.  It  is  not  a  panacea  for  all  ills,  nor  the  sover- 
eign solvent  of  every  difficulty  in  city  affairs,  but  it 

6 


THE   OLD    ORDER  7 

has  at  least  to  recommend  it  the  sincere  labor  of  able 
men  who  framed  the  charters  and  the  indorsement 
of  practical  administrators. 

Amateurs  v.  Professionals. — Undoubtedly  true, 
as  it  is,  that  the  old  commission  form  of  municipal 
government,  originating  in  Galveston,  has  enacted 
many  signally  excellent  measures,  yet  it  has  not 
proven  the  "cure-all"  its  advocates  expected.  Un- 
der this  new  regime,  in  so  many  cases,  the  old  style 
of  office-holder  has  wormed  his  way  back  into  po- 
sitions of  power.  The  new  duties  and  new  respon- 
sibilities and  enthusiasms  of  the  hour,  arising  in  the 
change  from  the  mayor  and  council  plan  to  the  stock 
commission  government,  have  done  much  to  regen- 
erate the  job  of  public  city  office.  The  original 
commission  plan  has  much  to  recommend  it,  but 
it  is  found  to  be  not  the  ultimate  nor  next  to  the 
ultimate  phase  of  municipal  administration.  The 
vital  error  still  remains  in  the  commissi  on  form  oi 
city  government — that  amateurs  are  called  upon  to 
execute  what  only  the  professionally  experienced 
are  competent  to  perform. 

The  Solution. — How  are  we  to  secure  the  benefit 
of  such  experience?  The  answer  to  this  is  con- 
tained in  those  advanced  instruments  of  govern- 
ment, the  city  charters  embodying  the  city  manager 
plans.    Many  cities  are  considering  following  those 


8  THE   CITY   MANAGER 

conspicuous  examples  of  leadership  exhibited  by- 
cities  adopting  the  city  manager  idea.  To  those 
cities  contemplating  a  change,  then,  and  to  all  those 
citizens  interested  in  the  live  issues  in  modern  mu- 
nicipalities, what  follows  will  be  of  keenest  interest. 
It  relates  a  chapter  in  civic  progress. 

The  Rise  of  the  New  City. — Twice,  out  of  an 
appalling  catastrophe,  came  new  cities:  first,  Gal- 
veston, then  Dayton.  Efforts  had  already  been 
made  in  the  latter  city,  looking  to  a  change  of  gov- 
ernment prior  to  that  fateful  flood  morning  in 
March,  19 13.  In  the  gray  hours  of  earliest  dawn, 
under  the  soaking  valley  mists,  a  mud-laden  sea, 
seven  inches  deep  over  four  hundred  square  miles 
of  watershed,  poured  down  the  Miami  Valley,  rose 
above  the  crumbling  levies  around  the  city,  and 
lifted  its  foaming  front  step  by  step  into  the  heart 
of  the  helpless  town — with  dawn  came  terror,  with 
daylight  destruction,  with  midnight  the  highwater- 
mark  of  pitiless  devastation. 

The  city  of  Dayton  stood  neck  deep  in  the  icy- 
current.  Snow  and  sleet  and  rain  soaked  what 
would  have  remained  dry  above  the  sea;  no  light, 
no  food,  no  dry  land — and  assets  by  the  millions 
hourly  following  each  other  into  nothingness.  Then 
dawn  broke  again;  now  there  was  no  law,  no  gov- 
ernment, no  supreme  power  except  the  courage  of 


THE   OLD    ORDER  9 

the  citizens.  The  disease  of  destruction  broke  out 
in  fire,  and  what  the  flood  refused  to  take  was 
sacrificed  in  flame,  rising  in  smoke  to  the  steaming 
heavens.  This  was  picturesque  and  dramatic  and 
inhuman.  But  the  terrible  toll  was  only  beginning 
to  be  taken. 

Then  the  aftermath.  The  old  government  was 
suspended.  Military  rule  guided  by  a  commission 
of  citizens  took  its  place  :  like  Galveston,  a  group  of 
able  men  brought  the  chaos  in  Dayton  into  precisive 
order.  Out  of  the  old  was  born  the  new.  Tradi- 
tions, old  ideals,  habits,  venerable  customs  foregath- 
ered with  their  fathers,  for  a  new  lesson  in  the 
meaning  of  efficiency  of  government  and  concen- 
trated power  and  organization  had  been  taught.  It 
was  the  vision  of  genuine  civic  greatness.  The  new 
government  now  is  a  step  toward  the  realization  of 
that  constructive  purpose. 

The  Turning  Point. — This  catastrophe  was  the 
second  milestone  in  the  evolution  of  city  govern- 
ment. Curiously,  disasters  have  been  the  land- 
marks of  municipal  progress.  The  efficiency  of  the 
Citizens'  Relief  Committee,  acting  as  a  commission, 
gave  the  people  of  Dayton  confidence  in  a  newer 
form  of  government. 

Dayton  wanted  efficiency,  and  knowledge  of  her- 
self was  the  first  step  to  secure  it.    Exact,  scientific, 


io  THE   CITY   MANAGER 

painstaking  knowledge  must  be  the  working  basis 
of  all  genuine  constructive  social  service.  And  this 
type  of  information  we  must  take  to  be  the  price 
of  all  good  government;  it  demands  laborious  gen- 
ius, eager  to  take  infinite  pains,  to  learn  the  truth 
about  a  city  so  that  a  fitting  remedy  can  be  applied. 

That  was  the  genus  of  the  genius  which  Dayton 
had.  She  took  stock  of  herself  and  found  that  the 
old  city  government  had  three  disastrous  faults. 
First,  its  financial  system  was  entirely  antiquated. 
There  was  no  set  procedure  for  the  formulation  of 
a  scientific  budget;  there  was  no  accurate  system 
of  cost,  or  operating  records;  there  was  no  up-to- 
date  accounting  system.  A  haphazard  spirit  of  ig- 
norant inefficiency  dominated  the  whole  civic  organ- 
ization. Second,  there  was  no  genuine  merit  system 
whereby  the  personnel  could  be  selected  upon  a  basis 
of  fairness  and  equality.  Third,  the  Department  of 
Health  was  in  a  pitifully  inefficient  state,  through 
no  fault  of  the  managing  officers,  but  by  reason 
of  the  fact  that  the  whole  organization  of  the  de- 
partment and  the  method  of  managing  it  were  com- 
pletely out  of  accord  with  the  spirit  and  object  of 
a  bureau  of  health.  The  departments  of  Fire  and 
Police  were  suffering  from  a  similar  disorganiza- 
tion. 

Government  by  Deficit. — By  this  phrase  the  Day- 


THE   OLD    ORDER  n 

ton  Bureau  of  Research  cleverly  dubbed  the  old 
government.  It  was  a  government  by  deficit,  a 
government  with  no  check  on  expenditure  by  any 
department,  with  little  forethought  in  regard  to  that 
embarrassing  future  question  as  to  where  the  money 
was  to  come  from. 

The  Shame  of  a  City. — In  six  years  the  total 
deficit  amounted  to  $360,000,  or  an  average  of 
$60,000  a  year;  in  19 12  alone  the  council  made  the 
barefaced  appropriation  of  $1,051,300  upon  an  ac- 
knowledged income  of  the  city  of  $943,000,  or  an 
excess  over  income  of  $108,300.  The  debt  of  Day- 
ton increased  from' $26.37  per  capita  in  1903  to 
$46.13  per  capita  in  19 13;  an  increase  of  76  per 
cent,  in  ten  years.  The  annual  tax  income  of  the 
City  in  19 13  was  $984,321.00,  yet  $452,378.00  was 
spent  in  the  liquidation  of  maturing  bonds  and  in- 
terest— 47  per  cent,  of  the  total  income  was  thus 
disbursed  to  carry  the  indebtedness  incurred  during 
the  past  by  mismanagement  and  other  causes. 

The  city  was  kept  going  by  issuing  bonds.  The 
real  remedy  should  have  been  to  eliminate  the  ex- 
pense and  extravagance  which  produced  the  deficit ; 
yet  that  was  not  the  worst  of  it.  These  bonds 
were  issued  for  expenditures  which  represented  cur- 
rent expenses,  not  permanent  improvements.  To 
issue  bonds  for  a  permanent  improvement  of  sub- 


12 


THE   CITY   MANAGER 


stantial  life  and  some  durability,  with  a  provision 
for  a  sinking  fund  which  should  equal  the  amount 
of  interest  and  principal  upon  maturity  of  bonds, 
would  be  sound  finance.  To  issue  bonds  for  current 
expenses  or  matters  of  very  short  life,  long  since 
passed  out  of  existence  when  the  bonds  mature,  is 
nothing  less  than  financial  suicide.  Dayton,  like 
many  another  city,  has  been  doing  that  very  thing. 
Apropos  of  this,  the  Research  Bureau  published 
during  the  campaign  for  the  new  charter,  a  series 
of  startling  tables  and  graphic  charts.  They  were 
vigorous  arguments  for  a  civic  revolution.  Here 
is  one  of  them  on  the  subject  of  issuing  bonds : 


Amount 

Year 

Year  of 

Estimated 

Still 

Purpose 

of 

Last 

Life  of 

Outstanding 

Issue 

Payment 

Improvement 

$108,000 

Unpaid  bills  and 

payrolls 

1909 

1924 

None 

25,000 

Street  lighting 

19H 

I94O 

None 

30,000 

Street  lighting 

19H 

1925 

None 

50,000 

Street  repairs 

1911 

1935 

5  years 

13,000 

Street  repairs 

I905 

1925 

5  years 

100,000 

Paving 

1894 

1916 

10-15  years 

175,000 

Paving 

1893 

I919 

10-15  years 

15,000 

Cleaning  sewers 

1908 

1926 

None 

25,000 

Reissue  street  pav- 
ing (should  have 
been  paid  at  ma- 

turity, 191 1) 

1894 

1927 

10-15  years 

This  table  speaks  for  itself. 

In  the  face  of  these  pregnant  facts,  the  outgoing 


THE   OLD    ORDER  13 

council  in  191 3  voted  a  general  increase  of  salary 
for  between  ninety  and  one  hundred  officials  and 
employees,  aggregating  $27,990  additional  per  year 
for  the  long-suffering  taxpayers  to  provide  for. 
These  increases  were  not  to  compensate  unusual 
merit  or  increased  efficiency  or  additional  labor.  It 
was  a  part  of  a  policy  to  relegate  economy  to  the 
forgotten  arts. 

The  population  of  Dayton  between  1903  and  1913 
increased  35,000.  The  debt  increased  during  that 
period  of  a  decade  $757,800. 

The  usual  difficulties  with  the  old  form  of  gov- 
ernment had  practically  bankrupted  the  city  of  Day- 
ton in  contrast  to  the  personal  prosperity  of  its 
citizens.  On  December  24,  19 12,  there  was  $900,- 
000  of  municipal  money  in  bank,  bearing  3  per  cent, 
interest;  nevertheless  on  that  day,  private  citizens 
paid  the  firemen  and  policemen  of  a  force  much 
reduced  in  numbers.  An  unwieldy  charter  and  a 
long  period  of  consequent  inefficiency  presented  a 
city  bankrupt  with  exactly  $911,712.42  of  unreach- 
able funds. 

The  Question. — So,  after  all,  the  problem  pre- 
sented to  Dayton  was  a  business  problem.  Cities 
are  vast  businesses,  and  all  face  what  Dayton  faced. 
Put  the  question  confronting  the  citizens  in  a  busi- 
ness way.    Suppose  one  of  those  persuasive  gentle- 


14  THE   CITY   MANAGER 

men  (who  sell  industrial  stock)  were  to  try  to  sell 
you  shares  in  a  corporation  with  an  annual  payroll 
of  nearly  a  half-million,  plus  a  bonded  debt  which 
demanded  nearly  a  half-million  more  yearly  to  meet 
the  interest  on  it  and  to  retire  it,  making  a  rough 
million  a  year  in  disbursements;  and  suppose  fur- 
ther that  the  president  could  practically  negative  all 
the  acts  of  the  directors  and  the  directors  could  and 
did  vote  money  for  corporate  uses  without  regard 
to  income,  and  that  supplies  were  bought  as  any- 
body pleased,  and  that  stockholders  were  practic- 
ally unable  to  inspect  the  books,  or  if  they  could, 
the  books  were  unintelligible  to  all  but  expert  ac- 
countants. Further  than  this,  take  into  considera- 
tion that  this  public  corporation  had  a  yearly  deficit 
of  nearly  10  per  cent,  of  its  disbursements,  and  a 
total  debt  of  nearly  seven  millions.  Then,  realizing 
all  this,  would  you  invest  your  capital,  your  energy, 
your  family's  happiness  and  even  safety  in  such  a 
wildcat  venture  of  commercial  insecurity? 

You  would  not!  Yet  that  was  how  the  public 
corporation  of  Dayton  stood.  No  more  shame  to 
Dayton  than  to  a  dozen  lesser  and  greater  cities, 
but  more  credit  to  her  now  for  her  courageous  rem- 
edy of  the  matter. 

City  Manager  Waite  was  quoted  as  saying,  upon 
a  thorough  examination  of  the  city  situation,  "What 


THE    OLD    ORDER  15 

Dayton  needs  is  a  receiver  instead  of  a  manager." 
But  what  Dayton  got  was  a  manager.  This  was 
his  problem — the  regeneration  of  a  municipal  busi- 
ness; and  what  is  said  hereafter  is  an  exposition 
of  the  means  of  his  accomplishing  it. 


CHAPTER   III 
PRELIMINARY  PLANS 

The  conduct  of  a  people  under  given  circumstances 
must  always  be  powerfully  affected  by  the  view  which  it 
takes  of  its  mission  and  destiny. 

James  Basset  Moore 

First  American  Manager  Plans 

Staunton  Plan. — January  13,  1908,  saw  the 
passage  of  a  measure,  by  a  city  council  in  a  little 
Virginia  city,  of  profound  import  to  American  mu- 
nicipal life.  The  town  of  Staunton  desired  com- 
mission government  and  inspired  by  the  radical  ad- 
vantages Galveston  and  other  cities  had  achieved,  it 
was  eager  to  adopt  a  similar  program. 

A  barrier  stood  in  the  way.  The  state  constitu- 
tion contained  the  mandatory  provision  that  all 
cities  of  the  first  class  must  have  a  mayor  and  coun- 
cil. This  was  a  blank  legal  wall  to  overcome,  for 
in  Staunton  there  lived  over  12,000  people.  It  was 
therefore  indisputably  a  city  of  the  first  class.  But 
some  genius  discovered  that  the  power  to  appoint 

16 


PRELIMINARY   PLANS  17 

new  officers  by  the  council  was  particularly  set  forth 
in  Section  1038  of  the.  Virginia  Code.  Depending 
on  this  vantage  point,  an  ordinance  was  passed,  pro- 
viding for  a  general  manager,  equipped  with  power 
to  take  entire  charge  and  control  of  all  the  execu- 
tive work  of  the  city  in  its  various  departments,  and 
entire  charge  and  control  of  the  heads  of  depart- 
ments and  employees  of  the  city.  The  general 
manager  under  that  plan  assumed  all  executive  du- 
ties, except  those  reserved  to  the  finance,  ordinance, 
school  and  auditing  committees.  It  will  thus  be 
seen  that  finance,  education,  and  legislation  were 
properly  withheld  from  his  control,  the  latter  power 
obviously  out  of  his  sphere  and  the  former  power 
retained  wisely  in  order  to  constitute  a  check  upon 
his  actions. 

This  new  executive  was  appointed  by  council  for 
a  definite  term  of  one  year  at  a  salary  of  $2,000 
(now  $2,500).  The  new  manager  was  financial 
adviser  of  the  council,  a  court  to  hear  complaints 
of  citizens,  and  supervisor  of  the  superintendents  of 
highways,  parks,  lights,  water,  and  corrections.  He 
was  made  the  purchasing  agent,  eliminating  the 
heterogeneous,  ill-advised  and  wasteful  miscellane- 
ous buying  by  each  petty  department  and  substitut- 
ing a  business-like  standardized  policy  of  wholesale, 
low-price  purchasing.    The  manager  in  this  form  is 


18  THE   CITY   MANAGER 

more  nearly  a  "controlled  executive"  than  in  the 
later  city  manager  plans;  in  Staunton  expenditures 
of  $100  or  over  must  be  approved  by  council  and 
then  audited  by  the  council's  auditing  committee 
before  the  fund  is  expended;  the  manager  has  no 
power  to  contract  loans,  or  fix  tax  rates,  or  formu- 
late policies,  or  supervise  the  police  and  fire  depart- 
ments, for  they  are  under  the  control  of  the  mayor, 
although  he  purchases  for  these  latter  departments. 
The  books  of  the  city  are  not  only  open  to  the  public 
for  inspection  at  will,  but  are  so  kept  that  the  finan- 
cial condition  of  the  city  can  be  ascertained  daily. 

As  Hon.  John  Crosby,  President  of  the  Common 
Council  in  Staunton,  says :  "Neither  the  people  nor 
the  council  have  surrendered  any  of  their  sovereign 
rights;  they  have  simply  created  an  office  known 
as  that  of  a  general  manager,  a  paid  employee,  who 
devotes  his  whole  time  and  attention  to  the  business 
of  the  city  and  who  is  responsible  to  the  council  and 
the  people,  instead  of  intrusting  the  affairs  of  the 
city  to  the  committees  of  the  council."  This  is  an 
adroit  way  of  stating  the  new  doctrine  of  civic 
power.  He  says  further:  "For  each  councilman 
thinks  that  the  other  members  of  the  committee 
have  more  time  than  he  has  for  looking  after  the 
business  of  the  city,  and  each  committeeman  is  of 
the  same  opinion — always  willing  to  let  the  other 


PRELIMINARY   PLANS  19 

fellow  do  it.  As  a  result,  that  which  is  everyone's 
business  is  no  one's  business,  and  the  poor  old  city- 
gets  along  the  best  she  can  to  the  detriment  of  the 
taxpayer  in  particular  and  the  people  in  general." 
This  epitome  of  the  old  spirit  of  our  public  officers 
is  well  and  pointedly  put.  And  this  is  a  plan  whose 
innovation  did  not  cause  an  increase  in  bonded  debt 
nor  a  rise  in  the  tax  rate,  although  during  the  very 
period  of  its  introduction  the  productive  saloon 
license,  amounting  to  $12,500,  was  taken  from  the 
city's  income,  and  several  disasters  of  several  times 
that  amount  caused  a  heavy  drain  on  the  city's 
finances. 

The  city  manager  idea  has  been  a  distinct  im- 
provement and  success  in  Staunton.  True  as  it  was 
that  the  city  manager  plan  was  yet  to  be  developed 
in  its  entirety,  nevertheless  Staunton  had  the  basic 
idea  and  pioneered  the  innovation  despite  risk  and 
ridicule.  To  Staunton  then  goes  the  laurels  for  the 
first  practical  application  of  a  business  manager 
scheme  to  civic  affairs. 

Lockport  Proposal. — A  bill  was  introduced 
into  the  New  York  Legislature  in  191 1  setting  forth 
what  was  known  as  the  "Lockport  Plan."  The  idea 
was  that  by  means  of  a  general  enabling  act,  which 
could  be  applied  to  any  third-class  city  through  local 
action,  a  particular  form  of  charter  could  be  adopted 


PRELIMINARY   PLANS  21 

which  would  allow  the  city  to  appoint  a  chief  execu- 
tive who  would  manage  the  public  corporation  as 
the  general  manager  of  a  private  corporation  would 
do.  This  plan  had  for  its  basic  idea  the  conferring 
of  the  fundamental  powers  of  initiative  and  referen- 
dum and  recall  upon  the  people.  Through  the 
agency  of  a  short  ballot  a  council  of  four  members 
and  a  presiding  officer  termed  a  mayor  would  be 
elected.  There  would  be  a  board  of  education 
elected.  The  council  would  appoint  a  city  manager 
who,  in  turn,  would  have  all  power  of  appointment 
and  removal  of  officers  not  specifically  provided  for 
in  the  proposed  charter. 

This  city  council  was  to  have  a  limited  amount 
of  control  over  the  administrative  department  in 
this  wise :  First,  it  could  issue  general  and  spe- 
cial orders,  by  resolution,  to  the  city  manager  to 
give  him  authority  to  carry  out  the  powers  and 
duties  conferred  upon  him;  second,  it  was  to 
require  the  city  manager  to  file  with  it  a  com- 
plete report  of  the  condition  of  the  departments 
once  a  year  and  miscellaneous  separate  reports  of  a 
special  nature  at  any  intervening  time;  third,  the 
city  council  was  furthermore  to  constitute  a  board 
of  estimate  and  apportionment  in  those  cases  where 
such  board  was  provided  for ;  fourth,  the  city  coun- 
cil could  also  provide  a  board  of  audit,  independent 


PRELIMINARY   PLANS  23 

of  the  city  manager,  which  was  to  have  ready  access 
to  the  vouchers  and  records  of  the  administrative 
departments,  with  the  exception  of  the  claims  aris- 
ing from  personal  injury  to  property  as  these  were 
to  be  passed  upon  by  the  city  council  itself;  fifth, 
the  city  council  was  to  have  the  power  to  validate 
whatever  lawful  acts  were  performed  by  the  ad- 
ministrative officer  of  the  city  when  he  acted  with- 
out any  previous  authority;  sixth,  in  cities  where 
highway  districts  were  independent,  the  city  council 
members  were  to  be  ex  officio  commissioners  of 
highways. 

The  city  manager  under  this  proposal  would  have 
peculiar  powers.  He  would  be  administrative  head 
of  the  government.  His  tenure  of  office  was  to  be 
at  the  pleasure  of  the  city  council.  He  was  to  exer- 
cise the  general  powers  of  executing  laws  and  ordi- 
nances promulgated  by  the  city  council.  He  was 
to  do  whatever  was  conferred  upon  mayors  of  cities. 
He  was  to  make  proper  recommendations  and  re- 
ports, and  advise  as  to  finances  and  other  material 
matters  relative  to  the  city's  welfare.  He  was  to 
appoint  all  the  officers  whose  selection  was  not  pro- 
vided for  in  some  other  fashion.  He  was  to  desig- 
nate officers  to  perform  certain  duties  which  the 
council  had  ordered  performed,  and  to  give  written 
notice  to  heads  of  the  departments  to  transact  busi- 


24  THE   CITY   MANAGER 

ness  suggested  by  the  council.  He  was  to  sign  docu- 
ments as  the  public  agent  of  the  city  and  have 
access  to  all  the  books  and  vouchers  of  the  city; 
he  was  to  have  power  to  conduct  whatever  exami- 
nation of  officials  or  conditions  which  might  be  nec- 
essary for  a  thorough  knowledge  of  the  public  busi- 
ness which  it  was  vital  for  him  to  have. 

This  was,  therefore,  the  first  complete  city  man- 
ager plan  proposed. 

The  European  Method  of  Municipal  Government 

Foreign  Ideas. — Europe  is  credited  with  a  large 
share  of  the  honor  in  originating  novel  forms  of 
city  government.  The  Continent  has  been  awarded 
the  distinction  of  the  creation  of  the  essentials  of 
the  city  manager  plan  of  municipal  rule,  but  it  has 
been  given  too  large  a  meed  of  praise  in  view  of  the 
actual  facts  of  the  case.  The  renown  for  the  real 
development  and  the  genuine  creation  of  this  most 
novel  of  municipal  governments  should  be  awarded 
to  the  genius  of  the  American  people. 

German  City  Government. — The  government 
of  Prussian  cities  is  often  cited  as  the  leading  ex- 
ample of  the  application  of  the  idea  of  a  city  man- 
ager to  municipal  affairs.  In  a  measure  this  is  true. 
There  does  exist  in  German  cities  a  profession  of 


PRELIMINARY   PLANS  25 

expert  administrators,  who  as  members  of  the 
Magistrat  or  as  Biirgermeisters  have  formed  a  large 
class  of  municipal  officials.  Nor  must  the  members 
of  the  various  councils  be  neglected  in  the  enumera- 
tion of  those  who  take  part  in  the  administration 
of  German  city  governments. 

A  brief  survey  of  the  Prussian  Municipal  Gov- 
ernment will  be  of  value  in  understanding  the  exact 
status  of  the  expert  administrator  abroad.  The 
chiefest  executive  power  is  exercised  by  a  body  of 
men  called  a  Magistrat.  The  Magistrat  is  an  ad- 
ministrative council,  composed  of  a  number  of  ad- 
ministrators, one  or  two  of  whom  are  entitled  Biir- 
germeisters. 

Bur  germeister. — This  official  is  the  chief  adminis- 
trative officer  and  presiding  figure  at  the  meeting  of 
the  Magistrat;  but  he  is  distinctly  the  colleague  of 
the  fellow-members  of  the  Magistrat  and  not  their 
superior  officer.  While  he  may  be  the  chief  magis- 
trate of  the  city  and  the  ceremonial  head  of  the  local 
government,  he  is  not  the  all-powerful  executive 
whom  no  one  can  gainsay.  There  is  no  power  of 
veto  in  him.  He  is  selected  by  the  city  council 
from  a  number  of  candidates  without  regard  to 
his  place  of  residence,  but  solely  with  an  eye  to  his 
past  record  for  achieving  results  in  the  administra- 
tion of  city  affairs.     He  must  be  preeminently  a 


( 


26  THE   CITY   MANAGER 

clear-headed,  vigorous  executive  with  capacity  and 
talent  for  municipal  work  and  equipped  with  a  gen- 
erous technical  training.  His  is  a  profession  in 
which  advancement  is  based  upon  the  achievement 
of  actual  results,  so  that  he  may  expect  to  rise  from 
smaller  to  larger  cities  according  as  he  demonstrates 
his  ability  to  successfully  discharge  the  duties  im- 
posed upon  him.  It  is  a  life  work  with  him  and 
the  smallness  of  salary  is  in  a  large  measure  com- 
pensated for  by  the  honor  and  social  prestige  and 
permanence  of  office  as  well  as  the  generous  pen- 
sion which  will  be  his  upon  the  discharge  of  his 
duties  for  a  greater  or  less  period  of  time.  He  is, 
as  Professor  Munro  aptly  states  him  to  be,  "an  ex- 
pert, a  professional  administrator,  who  looks  upon 
his  office  as  a  career,  who  seeks  the  post  on  his  public 
record,  and  who  expects  promotion  upon  this 
alone." 

Term  of  Office:  Salary. — His  term  of  office  is 
usually  twelve  years.  In  cities  the  size  of  Leipsic 
and  Dresden  he  may  be  appointed  for  life.  If  he 
serves  his  first  twelve  years,  a  second  term  of  sim- 
ilar length  is  very  sure  to  follow ;  and  upon  the  com- 
pletion of  the  service  of  twelve  years  his  pension 
will  be  half-pay,  and  if  he  discharges  his  duties  for 
twenty-four  years,  his  pension  will  be  nearly  full 
pay.    His  salary  is  not  one  which  is  of  any  material 


PRELIMINARY   PLANS  27 

size,  as  we  are  proposing  to  pay  our  city  managers 
or  even  have  paid  our  mayors.  In  Germany,  the 
Burgermeister  enjoys  a  great  security  of  office;  in 
America,  the  city  manager  occupies  a  very  precari- 
ous position  subject  as  he  is  to  the  quondam  whim 
of  the  electorate  exercising  their  powers  of.  recall 
as  they  please.  Many  times  there  is  a  considerable 
advantage  to  the  Burgermeister  by  virtue  of  the 
fact  that  he  is  allowed  an  official  residence.  His  ex- 
penses are  few  to  keep  up  his  position  for  he  is  not 
compelled  to  spend  a  large  amount  in  humoring  his 
political  followers  and  in  assisting  constituents  and 
in  financing  campaigns  and  indulging  in  public 
projects,  such  as  charities  which  customarily  form 
a  great  drain  upon  the  resources  of  American  offi- 
cials. 

Powers  and  Duties. — As  to  his  function  in  gov- 
ernment, the  Burgermeister  is  primarily  the  presid- 
ing officer  at  all  meetings  of  the  Magistrat.  He 
carries  into  effect  the  directions  of  that  body  and  is 
the  executive  agent  who  makes  effective  the  orders 
of  the  administrators.  He  supervises  all  the  actual 
detail  work  of  the  numerous  municipal  officers,  yet 
he  makes  no  appointments  of  any  importance.  His 
is  the  duty  to  divide  among  the  proper  joint  com- 
missions the  "various  departments  of  civic  adminis- 
tration" and  his  is  the  problem  to  select  the  per- 


28  THE   CITY   MANAGER 

sonnel  of  these  commissions  from  the  citizen  depu- 
ties, the  council  and  the  Magistrat.  He  has  the 
additional  authority  to  inspect  the  various  municipal 
departments,  and  where  the  police  administration 
is  not  vested  wholly  in  the  State,  he  has  some  con- 
trol over  that.  It  is  to  be  understood,  however, 
that  the  detail  work  of  police  administration  is  al- 
ways vested  in  a  police  commissioner  whenever  the 
control  of  that  force  is  wholly  civic  in  character. 

Character  of  Magistrat. — The  Magistrat  is  com- 
posed of  a  number  of  able  men  who  are  experts 
in  municipal  administration.  Some  of  the  members 
are  paid  and  some  unpaid.  In  size  it  may  be  a  board 
of  considerable  magnitude,  running  in  number  as 
high  as  thirty-four  in  the  larger  cities.  The  mem- 
bers are  selected  by  the  city  council  for  a  period 
of  twelve  years,  usually,  but  in  some  cases  even  for 
life.  This  provision  applies  to  paid  members  only 
as  the  unpaid  members  are  elected  for  one-half  of 
the  twelve-year  term. 

Departments. — These  paid  Magistrats  are  expert 
administrators  to  each  of  whom  is  assigned  a 
particular  department  of  the  city's  affairs.  The 
department  may  be  that  of  education,  of  law,  of 
public  work,  of  hospital  service,  or  of  finance. 
The  division  into  departments  is  very  nearly  akin 
to  what  we  have  in  America.    To  become  a  depart- 


PRELIMINARY   PLANS  29 

mental  head  it  is  necessary  to  have  a  particular 
training,  often  highly  technical  in  character,  and 
have  an  adequate  experience  to  discharge  the  func- 
tions of  that  division  of  government  to  which  the 
particular  official  is  assigned.  There  is  seldom  seen, 
therefore,  the  anomalous  condition  of  American  city 
management  where  a  man,  fitted  by  training  and 
technical  knowledge  for  the  administration  of  one 
department  of  government,  inexperienced  in  any 
other,  is  put  in  control  of  a  division  totally  alien 
to  his  talents.  In  Prussia,  the  selection  of  an  offi- 
cial is  based  upon  the  same  method  that  we  use  in 
the  selection  of  a  business  manager  or  a  purchasing 
agent  for  a  large  private  corporation. 

Powers  of  Magistrat. — The  unpaid  members  of 
the  Magistrat  are  chosen  because  of  their  general 
administrative  ability.  They  must  be  residents  of 
the  city,  but  beyond  that  there  is  no  requirement 
as  to  their  qualifications  save  that  general  one.  Pro- 
fessor Munro  has  performed  a  most  illuminating 
service  in  his  late  book  on  "The  Government  of 
European  Cities"  in  the  classification  of  the  powers 
of  the  Magistrat,  briefly  as  follows : 

The  Magistrat  must  execute  the  national  laws. 
Upon  it  devolves  the  duties  of  preparing  business 
for  the  council  and  the  execution  of  their  joint 
measures.    Supervision  of  municipal  activities  rests 


30  THE   CITY   MANAGER 

upon  the  Magistrat.  The  members  of  the  board 
must  completely  administer  all  matters  of  revenue, 
both  income  and  outgo.  This  body  is  charged  with 
the  care  of  all  property  which  the  city  owns.  They 
appoint  all  the  paid  officers  of  the  city  and  this  is 
a  very  important  power  for  only  the  material  offi- 
cers are  paid  officers;  they  also  have  the  power  of 
removal  and  determine  the  salaries  of  the  officials. 
They  are  guardians  and  caretakers  of  all  public 
documents,  as  well  as  private  documents.  They  are 
the  official  representatives  of  the  city.  They  appor- 
tion the  work  among  the  authorities  and  officials 
who  do  the  actual  detail  work  of  the  city. 

Council. — The  third  material  division  in  German 
city  government  is  the  council.  It  is  a  slow-moving 
deliberative  body,  usually  about  three  times  as  large 
as  the  Magistrat  and  composed  of  a  large  number 
of  influential  and  powerful  men  whose  wisdom  is 
employed  to  formulate  policies  for  the  welfare  of 
the  city,  and  who  serve  as  a  check  upon  the  actual 
performances  of  the  Magistrat  over  whom  they  have 
appointive  power.  Its  dual  functions  are  as  advis- 
ory board  to  the  Magistrat  and  as  a  legislative  body, 
passing  upon  the  proposals  of  the  administrative 
department.  The  budget  is  the  crucial  proposal 
every  year  and  that  is  the  one  about  which  the  chief 
interest  centers.    The  council's  domain  of  power  is 


PRELIMINARY   PLANS  31 

even  extended  to  the  initiation  of  measures ;  never- 
theless, this  is  usually  performed  by  the  Magistrat. 
The  meetings  of  this  legislative  body  are  very  for- 
mal and  very  tedious,  but,  in  spite  of  the  amount 
of  red  tape  which  seems  to  burden  its  actions,  it  is 
a  useful  and  serviceable  organ  of  government.  In- 
deed, it  is  doubtless  an  institution  of  great  value  in 
German  city  life;  yet,  like  many  other  foreign  ideas 
when  transplanted  to  our  soil,  it  would  probably 
prove  wholly  unsuited  to  us  and  disastrous  in  con- 
sequence. 

History  Repeats  Itself. — The  ills  of  the  mod- 
ern American  city  are  but  the  repetition  of  the  piti- 
ful condition  of  English  cities  in  the  eighteenth  cen- 
tury when  the  Royal  Commission  of  1833  was  first 
empowered  to  investigate  the  affairs  of  the  bor- 
oughs. That  Commission  found  a  startling  state  of 
affairs.  Yet  the  conditions  then  were  scarcely  worse 
in  an  administrative  way  than  our  own  affairs  in 
many  American  cities  of  the  present,  and  the  con- 
ditions existed  then  with  far  better  excuse  than  we 
can  present  now  in  more  modern  times. 

The  English  town  clerk  has  been  said  to  be  the 
progenitor  of  the  city  manager.  This  is  an  erro- 
neous assumption.  The  only  way  in  which  the  Eng- 
lish town  clerk  or  any  of  the  English  officials  in 
municipal  government  have  any  similarity  or  rela- 


32  THE   CITY   MANAGER 

tion  to  the  present  modern  form  of  municipal 
American  government  lies  in  the  fact  that  the  Eng- 
lish officer  is  usually  a  highly  trained  individual, 
commonly  a  professional  man,  who  regards  his  po- 
sition with  the  city  as  a  part  in  a  profession.  It  is 
so  much  of  a  profession  that  young  men  are  "arti- 
cled" to  town  clerks,  then  go  out  themselves  to  serve 
as  town  clerks  in  small  cities,  and  gradually  rise  to 
higher  positions  in  larger  cities  as  their  abilities 
may  justify. 

The  town  clerk  is  the  chief  legal  officer  of  the 
municipality.  He  is  in  large  measure  an  executive 
officer  of  professional  character,  an  adviser  to  the 
council  and  a  representative  of  the  municipality  in 
many  city  affairs  involving  technical  legal  problems. 
So  far  as  his  duties  extend,  he  is,  therefore,  a  pro- 
fessional administrator  and  in  that  regard  is  a  coun- 
terpart of  the  city  manager.  But  he  does  not  have 
entire  control  of  the  city,  and  entire  responsibility 
for  all  departments  with  power  of  appointment  and 
power  of  removal.  He  only  exercises  jurisdiction 
over  a  particular  section  of  municipal  government, 
there  being  a  number  of  other  officials,  all  of  whom 
must  coact  with  him  and  each  of  whom  has  his 
share  in  contributing  toward  the  final  result  of 
efficiency  or  inefficiency,  as  the  case  may  be. 

The  council  in  English  cities  is  a  very  important 


PRELIMINARY   PLANS  33 

and  influential  body  whose  actions  and  opinions  are 
entitled  to  the  greatest  consideration  and  weight. 
Its  say  is  paramount.  Its  members  may  disregard 
the  advice  of  the  technical  heads  of  various  depart- 
ments who  work  under  them  and  their  committees ; 
this  is  unusual,  but  it  may  be  done  and  illustrates 
the  entire  freedom  with  which  they  exert  their 
powers. 

In  this  slight  regard,  therefore,  it  will  be  seen 
that  the  English  city  has  only  the  germ  of  the  idea 
which  is  embodied  in  the  modern  American  city 
government.  It  has  the  idea  of  a  well-trained  tech- 
nical man,  who,  by  profession,  is  a  municipal  ex- 
pert and  administrator,  devoting  his  life  to  it  as 
professional  work  and  expecting  to  remain  in  it  for 
its  corresponding  rewards  of  honor  and  recompense. 

The  salaries  of  the  town  clerks  are  not  always 
very  large,  but  the  various  side  emoluments  of  the 
office  are  such  that  they  attract  to  the  position  men 
of  unusual  worth  and  very  high  qualifications. 
There  are  the  identical  inducements  which  attract 
to  German  municipal  life  the  finest  of  the  technical 
administrators  in  the  Empire.  The  position  is 
made  attractive  not  only  for  its  salary,  but  for  its 
honor  and  reputation  and  the  power  and  respect 
accorded  it.  These  will  have  to  become  material 
elements  in  the  success  of  the  American  plan.    High 


34  THE   CITY   MANAGER 

qualities  in  the  administrator  and  unusual  services 
cannot  be  secured  by  exorbitant  salaries  only;  but 
much  must  be  done  and  much  must  be  secured  by 
instilling  into  the  atmosphere  of  the  place  a  certain 
fineness  of  spirit  which  alone  can  command  the 
highest  and  finest  work  on  the  part  of  the  incum- 
bent. Right  now  the  position  of  city  manager,  offer- 
ing as  it  does  an  opportunity  for  reputation  and 
honor  on  the  part  of  the  occupant,  has  this  certain 
prospect  of  professional  promotion  "as  its  chiefest 
attribute  and  its  chiefest  incentive  to  able,  ambi- 
tious administrators." 

French  City  Government. — The  professional 
idea  is  a  basic  one  in  France.  The  efficiency  of  the 
whole  municipal  fabric  is  bound  up  in  the  effective- 
ness with  which  the  technically  trained  under-offi- 
cials  discharge  their  duties.  The  permanent  profes- 
sional executives  of  the  departments,  as,  for  exam- 
ple, le  secretaire  de  make,  chief  of  the  clerical  force 
of  the  city,  are  the  backbone  of  the  whole  system. 

Professor  Munro  says  as  to  their  body  of  profes- 
sional administrators :  "It  would  not  be  too  much 
to  say  that  the  cities  of  France  are  administered 
very  largely  by  corps  of  permanent  municipal  offi- 
cials acting  under  a  broad  range  of  authority  com- 
mitted to  them  by  the  mayors.  Though  apparently 
vested  in  the  hands  of  the  layman,  the  administra- 


PRELIMINARY   PLANS  35 

tion  is  in  reality,  therefore,  distinctly  professional." 
The  whole  underlying  fabric,  then,  of  municipal 
government  in  French  cities  is  founded  upon  this 
army  of  trained  men  who,  by  virtue  of  experience 
and  technical  training,  master  the  details  of  public 
office,  adjust  the  complicated  machinery  of  official- 
dom, and  create  that  record  of  efficiency  commonly 
accredited  solely  to  their  laymen-superiors. 


CHAPTER   IV 
THE  POWER  OF  THE  ELECTORATE 

The  lines  upon  which  national  parties  divide  have  no 
necessary  connection  with  the  business  of  the  city.  Such 
connections  open  the  way  to  countless  schemes  of  public 
plunder  and  civic  corruption. 

Theodore   Roosevelt 

The  Divorce  of  the  City  and  the  National  Party. 
— Parties  have  been  treated  as  the  chiefest  elements 
in  democratic  government.  And  parties,  it  is  true, 
are  the  vitals  of  politics,  but  "what  we  call  poli- 
tics," says  Rt.  Hon.  James  Bryce,  "lies  within  the 
action  of  the  nation  and  the  national  government," 
and  not  within  the  sphere  of  the  city. 

There  is  no  more  signal  indication  of  the  trend 
of  popular  action  than  the  change  in  the  powers 
of  the  electorate.  We,  as  satisfied  citizens  of  what 
we  have  assumed  was  a  quite  perfect  democracy, 
have  been  wont  to  content  ourselves  with  the  cant 
phrases  of  "by"  and  "of"  and  "for  the  people." 
We  have  even  prided  ourselves  on  that  shrewd,  in- 
genious way  in  which  we  have  devised  checks  and 

36 


THE  POWER  OF  THE  ELECTORATE        37 

balances  on  the  actions  of  officials  to  insure  a 
fool-proof  system  of  genuine  honesty.  We  have 
even  gone  so  far  as  to  congratulate  ourselves  upon 
a  complicated  ballot,  because  we  thought  we  could, 
forsooth,  have  the  inestimable  privilege  of  voting 
for  each  and  every  one  of  a  number  of  miscellaneous 
officers,  few  of  whom  we  knew  personally  and  lit- 
tle of  whose  duties  we  ever  comprehended.  Intri- 
cacy and  complication  and  a  so-called  political  sys- 
tem had  their  glamour,  but  the  hour  of  glamour 
as  an  excuse  for  inefficiency  and  indirection  is  no 
more. 

A  Dollar-for-Dollar  Deal. — The  people  of  the 
American  city  have  taken  in  personal  hand  the 
workings  of  municipal  government.  They  demand 
a  dollar-for-dollar  deal.  To  make  sure  of  such 
treatment  they  must  have  the  exclusive  power  to 
determine  policies  and  to  direct  the  administra- 
tion of  the  city's  affairs;  and,  once  having  gained 
the  power,  they  must  devise  a  means  of  retention 
of  it. 

That  old  system  of  checks  and  balances,  while 
perhaps  a  thing  of  poetic  beauty  to  the  professional 
politician,  has  proved  a  disastrous  failure  in  our 
city  life.  The  customary  blanket  ballot  with  name 
after  name  in  long  and  confusing  arrangement 
headed  at  each  column  by  a  symbol  of  party  allegi- 

1134 1 0 


38  THE   CITY   MANAGER 

ance  for  the  guidance  of  the  faithful,  has  proved 
a  mighty  instrument  for  the  instructed,  politically 
inclined  few,  but  has  been  signally  deficient  as  a 
means  of  expression  of  the  real  popular  will.  It 
were  so  much  easier  to  put  the  cross-mark  beneath 
the  party  symbol  than  to  laboriously  exercise  the 
faculty  of  mind  and  select  from  the  tedious  array 
of  names  the  man  who  should  happen  to  be  the  fit- 
test for  the  place  for  which  he  was  candidate.  "Let 
others  think  for  you"  is  an  easy  doctrine  indeed. 
As  a  consequence  there  was  not  much  opposition 
to  the  party  leader  when  he  selected  the  candidates 
for  his  following  to  vote  for.  And  the  voter  voted 
because  the  party  had  indorsed  the  candidate;  the 
candidate  ran  because  he  was  selected  by  the  party 
leader;  and  the  party  leader  selected  him  because 
he  would  be  useful.  Things  work  well  in  perfect 
circles  of  politics. 

The  Test. — The  ultimate  test,  then,  of  fitness  as  a 
candidate  was  political  affiliation.  Yet  the  test  when 
elected  was  that  of  efficient  performance  of  the  du- 
ties of  the  office.  No  wonder  the  job  and  the  man 
seldom  met  and  fitted  at  the  City  Hall.  More  often 
it  was  the  method  of  selection  rather  than  the  offi- 
cial who  was  really  to  blame.  And  the  conscientious 
officer  who  did  feel  the  responsibilities  of  public 
service  would  often  find, 


THE  POWER  OF  THE  ELECTORATE        39 

I  have  done  some  offense 
That  seems  disgracious  in  the  city's  eye, 

without  realizing  that  the  cause  was  his  own  unpre- 
paredness. 

The  Objective  Point. — This  was  the  condition  in 
the  average  city.  To  secure  the  fabled  benefits  of 
life  in  a  magic  municipality  administered  by  popular 
direction,  it  has  been  found  that  national  and  mu- 
nicipal politics  must  be  divorced  for,  perforce,  their 
issues  and  the  qualifications  of  their  candidates  were 
alien.  It  was  found  that  the  ballot  must  be  simpli- 
fied so  that  the  ordinary  citizen  could  select  with 
some  facility  men  prominent  enough  to  be  well 
known  as  fitted  for  the  duties  of  an  office  well 
understood.  This  was  a  step  toward  the  elimina- 
tion of  selection  by  party  leaders  for  political  rea- 
sons and  substituting  efficiency  as  the  test  of  choice. 
It  was  realized  that  means  must  be  devised  for  the 
people  to  express  their  desires  as  to  policies  and 
plans  at  times  other  than  the  regular  elections ;  that 
they  must  have  means  to  negative  policies  contrary 
to  popular  will;  that  they  might  have  means  of 
remedying  their  mistakes  of  judgment  in  the  selec- 
tion of  officials,  at  times  other  than  the  regularly 
constituted  elections. 


40  THE   CITY   MANAGER 

Means  of  Accomplishment 

Short  Ballot. — The  short  ballot  is  the  new  instru- 
ment placed  in  the  hands  of  the  electorate  for  the 
exercise  of  their  power.  This  movement  from  out 
of  the  maze  of  popular  indifference  and  away  from 
the  spirit  of  laisscz  faire  has  entailed  the  fall  of 
many  old  political  ideals.  There  is  no  more  star- 
tling expression  than  this  of  the  new  spirit  of  the 
voters. 

We  have  been  weaned  away  from  the  former 
ideal  of  voting  for  a  man  for  every  possible  office 
at  every  election.  The  moss-grown  method  of  bal- 
ancing one  man's  actions  nicely  against  the  evils 
another  might  do,  and  the  venerable  use  of  the  party 
emblem  at  the  head  of  the  ballot,  have  both,  in  com- 
pany with  many  other  similar  practices,  met  the  fate 
of  those  who,  well  tried,  have  been  found  wanting 
in  the  crucial  test  of  actual  service.  With  this 
genesis  of  popular  thought  comes  the  new  ballot 
having  the  few  names  of  a  few  prominent  men  for 
worth-while  offices,  elected  at  intervals  sufficiently 
apart  to  give  them  an  opportunity  to  demonstrate 
what  they  can  do  in  the  way  of  service  to  the  city 
as  competent  administrators.  It  gives  the  able  man 
an  opportunity  to  capitalize  his  ability  for  the  benefit 
of  the  city. 


THE  POWER  OF  THE  ELECTORATE        41 

"Political  conditions  are  changed  by  the  ideals 
of  the  people,"  said  Senator  Burton  of  Ohio,  but  it 
is  still  more  true  that  the  ideals  of  the  people  vary 
with  political  conditions.  The  political  condition  of 
inefficiency  has  largely  shaken  popular  belief  in  the 
soundness  of  our  city  system.  Persuaded  to  the 
need  of  change,  remedial  measures  met  a  ready  wel- 
come. No  longer  the  cumbersome,  complicated, 
exasperatingly  technical  ballot  sheet  blanketing  the 
will  of  the  voter!  No  longer  the  party  emblem  as 
the  ready  password  for  the  illiterate  voter!  The 
small  and  simple  and  sensible  ballot  has  survived 
the  carpings  of  the  technical,  the  bugaboo  of  un- 
constitutionality and  the  vicious  attacks  of  the 
reactionary.  The  gospel  of  efficiency,  of  sim- 
plicity and  of  directness,  we  may  say,  has  had  its 
effect. 

This  sterling  principle  has  gained  wide  recogni- 
tion. It  is  the  true  basis  of  city  government  and 
the  city  manager  plan  of  government.  It  insists 
that  first  and  foremost  the  voter  must  exercise  his 
mind.  It  fulfills  the  demand  that  the  voter  must 
have  the  means  to  cast  his  vote  intelligently.  It  is 
agreed  that  very  few  offices  should  be  filled  by  elec- 
tion at  one  time.  It  is  conceded  that  only  those 
offices  should  be  elective  which  are  important 
enough  to  attract  and  hold  public  interest  and  in- 


42  THE   CITY   MANAGER 

spection.     These,  then,  are  the  crucial  elements  of 

(success  in  the  short  ballot. 
I  Wards  Must  Go. — The  spirit  of  sectionalism  has 
dominated  the  political  life  of  every  city.  Ward 
pitted  against  ward,  alderman  against  alderman, 
and  legislation  only  effected  by  "log-rolling"  extrav- 
agant measures  into  operation,  mulcting  the  city,  but 
gratifying  the  greed  of  constituents,  has  too  long 
stung  the  conscience  of  decent  citizenship.  This 
constant  treaty-making  of  factionalism  has  been  no 
less  than  a  curse.  The  city  manager  plan  proposes 
the  commendable  thing  of  abolishing  wards.  The 
plan  is  not  unique  in  this  for  it  has  been  common 
to  many  forms  of  commission  government,  but  it  is 
mentioned  here  because  the  city  manager  plan  is  the 
embodiment  of  many  of  the  virtues  of  experiments 
of  the  past  in  combination  with  certain  original 
features  of  its  own  choosing.  The  abolition  of 
wards  is  without  doubt  an  innovation  of  profound 
value  in  cities  under  one  hundred  and  fifty  thou- 
sand population.  In  cities  of  this  size  and  under 
the  evils  of  ward  systems  were  most  apparent.  The 
vicious  system  of  patronage,  of  "log-rolling"  and 
of  selecting  officials  proposed  by  powerful  alder- 
men for  positions  in  the  city  government  are  all 
attendant  evils  upon  treating  the  city,  not  as  a  unit, 
but  as  a  conglomeration  of  disjointed  and  unrelated 


THE  POWER  OF  THE  ELECTORATE        43 

heterogeneous  parts.  By  electing  councilmen  from 
wards  and  several  at  large,  some  wards  were  rep- 
resented by  two  men,  some  by  only  one. 

The  new  city  is  a  unit.  The  new  officers  are 
elected  each  to  represent  all  the  people.  Their  du- 
ties are  so  defined  that  they  must  administer  the 
corporate  business  in  its  entirety,  not  as  a  hodge- 
podge of  associated  localities.  In  large  cities  the 
wards  are  of  such  size  that  it  would  be  impossible 
for  a  few  men  to  be  elected  at  large  with  any  degree 
of  success,  for  their  knowledge  of  local  conditions 
in  various  sections  of  the  city  would  be  very  meager. 
The  good  in  the  retention  of  wards,  therefore,  in 
the  larger  cities  is  counterbalanced  by  the  evil  of 
selecting  men  at  large,  as  above.  It  is  suggested 
that  it  is  better  perhaps  to  permit  a  few  large  wards 
to  each  select  a  man  or  men  well  known  and  broad 
enough  in  their  principles  to  regard  their  duty  to 
the  city  as  superior  to  their  particular  duty  to  any 
particular  division  of  it  or  any  group  of  constitu- 
ents, and  to  abolish  the  election  of  numerous  men 
from  a  ward  or  one  man  each  from  many  wards. 
Those  well  versed  in  the  retention  of  wards  still 
consider  it  a  matter  of  grave  doubt  whether  it  is 
advisable  to  retain  them.  This  would  be,  however, 
a  beneficial  compromise. 

The  Initiative. — We  have  taken  a  grip  on  things. 


44  THE   CITY   MANAGER 

It  used  to  be  a  respectable  political  theory  in  the 
minds  of  those  gentlemen  who  manipulated  the  bal- 
lot that  once  every  so  often,  about  election  time, 
the  public  would  probably  have  a  sudden  excess  of 
unusual  intelligence,  that,  upon  the  suggestion  of 
these  professional  party  leaders,  wise  in  the  ways  of 
precincts  and  wards,  the  people  would  vote  for  the 
party  man,  and  then  the  voters  would  lapse  into  a 
dignified  apathy  until  the  next  voting  period  rolled 
around.  Not  so  is  the  present  attitude  of  the  citi- 
zen. He  prefers  to  dispense  with  the  suggestion  of 
the  talented  politician.  He  is  determined  to  be 
master  of  his  interest  every  day  in  the  year  and 
prefers  not  to  delegate  responsibility  where  he  can- 
not exercise  reasonable  checks  upon  it.  So  long  as 
he  is  called  upon  to  pay  every  day  for  the  acts  of 
those  he  votes  for,  he  ought  to  be  allowed  a  pro- 
portionate amount  of  control.  Paying  every  day 
should  mean  the  privilege  of  voting  every  day,  if 
that  is  the  essential  to  the  achievement  of  results. 

The  initiative  is  a  method  whereby  a  determined 
percentage  of  the  voters  can  by  petition  present  to 
the  council  or  the  commission  a  policy  or  plan  for 
governmental  adoption,  and  if  refused,  have  it 
voted  upon  by  the  people  at  a  duly  constituted 
election.  The  basic  idea  is  that  the  source  of  power 
is  the  people.     This  is,  then,  simply  a  means  for 


THE  POWER  OF  THE  ELECTORATE        45 

permitting  the  people  to  exercise  one  of  their  own 
functions. 

The  details  of  carrying  this  idea  into  effect  vary 
with  the  charters.  In  Dayton,  Ohio,  10  per  cent, 
of  the  total  number  of  registered  voters  must  sign 
the  petition  to  propose  an  ordinance.  If  the  com- 
mission rejects  the  proposed  ordinance  or  passes 
it  in  a  different  form,  the  addition  of  15  per  cent., 
a  total  of  25  per  cent.,  of  such  whole  number  of 
electors  presents  the  matter  for  a  general  election 
and  a  vote  by  the  people.  In  Springfield,  Ohio,  a 
city  of  about  fifty  thousand  inhabitants,  5  per  cent, 
of  the  electors  may  submit  the  ordinance,  a  public 
hearing  before  the  commission  to  be  had  upon  it, 
and,  if  rejected,  or  amended  and  then  passed,  5  per 
cent,  additional  of  the  total  number  of  registered 
voters  can  demand  an  election  and  a  test  of  the 
question  by  a  general  vote  upon  the  matter.  The 
city  of  Springfield  has  also  wisely  provided  that 
its  legal  officer,  the  city  solicitor,  shall  draft  the 
proposed  ordinance  so  that  it  may  be  free  from  any 
legal  defect  and  be  embodied  in  proper  approved 
legal  form.  These  provisions  are  typical  of  similar 
proposals  in  other  cities. 

Referendum. — The  partner  of  the  initiative  is  the 
referendum.  This  is  a  provision  in  the  city  charter 
permitting  the  electorate,  as  a  court  of  final  appeal, 


46  THE   CITY   MANAGER 

to  pass  upon  the  measure  itself  and  to  adopt  or 
reject  it  immediately,  without  waiting  until  a  gen- 
eral election,  when  the  only  remedy  would  be  the 
venting  of  popular  displeasure  upon  the  officials 
themselves  by  defeating  them  for  reelection.  This 
makes  it  a  question  of  policies  immediately  deter- 
mined rather  than  a  question  of  personalities  of 
men  distantly  determined.  It  is  a  review  and  con- 
firmation or  rejection  of  a  measure  the  legislative 
body  has  passed  or  refused  to  pass. 

The  details  of  the  working  of  the  broad  prin- 
ciples of  referendum  are  as  various  as  the  instru- 
ments adopted  to  carry  them  out.  The  charter  of 
Springfield  is  typical  of  the  provisions  made  for  the 
citizens  to  keep  check  upon  the  performances  of 
their  representatives.  It  provides  that  no  ordinance, 
unless  it  be  an  emergency  measure,  or  an  annual 
appropriation  ordinance,  shall  go  into  effect  until 
thirty  days  shall  have  elapsed  after  its  passage.  If 
within  that  time  a  petition  bearing  the  names  of  15 
per  cent,  of  the  total  number  of  registered  voters  is 
presented  to  the  clerk  of  the  city  commission,  re- 
questing a  repeal  or  an  amendment,  and  the  com- 
mission does  not  repeal  or  amend  the  ordinance, 
then,  upon  the  request  of  a  committee  of  petition- 
ers, the  question  must  be  submitted  to  a  vote  of  all 
the  people.    In  Dayton  the  charter  provides  that  the 


THE  POWER  OF  THE  ELECTORATE        47 

percentage  of  electors  who  must  sign  such  a  peti- 
tion shall  be  twenty-five.  These  provisions  are  only- 
one  means  of  realizing  the  Jeffersonian  ideal  of 
power  resident  in  and  remaining  with  the  electorate. 

Recall. — A  significant  phrase  occurs  in  Dayton's 
new  charter:  "Any  or  all  of  the  Commissioners, 
or  the  City  Manager,  provided  for  in  this  Charter, 
may  be  removed  from  office  by  the  electors." 

This  reminds  us  of  that  trite  saying  to  the  effect 
that  a  "wise  man  changes  his  mind,  but  a  fool  never 
considers  this  his  privilege."  The  electorate  for 
these  many  years  voted  at  stated  intervals  and  then 
lapsed  into  inaction,  helpless  at  the  hands  of  those 
they  had  helped  and  elevated  to  the  powers  of  gov- 
ernment. When  those  chosen  few  proved  worthless 
or  faithless  in  the  course  of  the  discharge  of  their 
trust,  there  was  no  remedy  for  a  long-suffering 
public  until  the  next  elective  period  rolled  around. 
There  was  no  provision  for  the  public  to  change 
its  mind.  The  recall  is  in  the  nature  of  a  pro- 
hibitory injunction  on  the  inefficiency  of  public  offi- 
cials; the  recall  will  enjoin  the  official  by  removing 
him  from  office  and  preventing  any  further  display 
of  his  inefficiency,  before  an  irreparable  injury  is 
done. 

No  business  could  be  run  on  an  office  tenure  of 
such  a  permanent  kind  as  we  used  to  endow  our 


48  THE  "CITY   MANAGER 

city  with.  The  workings  of  the  modern  municipal- 
ity have  been  found  not  to  be  alien  at  all  to  the 
management  of  great  private  industrial  enterprises. 
It  used  to  be  the  political  fashion  to  be  burdened 
with  official  incompetency  from  election  to  election, 
and  then  at  these  stated  times  to  gather  party  forces 
and  bring  to  bear  keen  persuasion  to  reelect  the  bur- 
densome gentleman  because  he  was  a  faithful  sup- 
porter of  party  principles  and  the  obedient  servant 
of  political  interests.  The  order  of  our  present  day 
has  decreed  otherwise.  Elections  can  come  fre- 
quently, necessitating  the  gathering  of  the  organized 
hosts  at  too  frequent  intervals  and  entailing  too 
expensive  a  program  for  the  usual  party  organiza- 
tion to  sustain.  The  strain  is  too  great  in  many 
instances  and  the  charges  too  large  to  whip  into 
line  always  the  organized  ranks  of  the  faithful. 
Elections  come  frequently  then  for  the  incompetent 
even  though  selected  by  a  party  and  supported  by 
a  party;  and  it  must  be  a  strong  man  indeed  to 
weather  these  cyclones  of  public  disapproval. 

The  man  who  performs  his  duties  faithfully, 
while  open  of  course  to  being  victimized  by  circum- 
stances, will  in  the  long  run  have  little  to  fear  from 
the  changing  whim  of  the  people.  The  percentage 
of  voters  necessary  for  concentrated  action  is  too 
great  to  allow  the  plan  to  become  the  instrument  of 


THE   POWER   OF  THE  ELECTORATE        49 

a  dissatisfied  minority.  It  is  objected  that  the  offi- 
cial will  be  in  constant  fear  of  popular  disfavor. 
Why  not?  The  people  elect  him  and  they  pay  him 
and  they  suffer  for  his  faults,  so  why  should  he 
not  bear  the  burdens  as  well  as  the  favors  of  the 
popular  will?  The  American  city  official  has  so 
often  held  office  for  a  period  of  years  until  his 
mind  has  become  clouded  with  the  illusion  that  he 
was  gifted  with  the  sovereign  power  of  an  eternal 
prerogative,  and  to  insure  official  activity  it  is  a 
good  precept  to  teach  that  no  lease  on  any  public 
office  is  granted  to  any  man. 

Persuaded  to  this  magic  belief,  then,  that  the  peo- 
ple should  at  least  be  credited  with  moderate  intel- 
ligence and  granted  the  ultimate  control  of  their 
own  affairs,  the  city  of  Dayton  provides  that  one- 
fourth  of  her  registered  voters  may  raise  the  ques- 
tion of  recall  by  petition  and  if  the  official  objected 
to  does  not  resign,  a  general  election  to  test  the 
question  whether  he  shall  continue  in  office  shall  be 
held. 

A  very  wise  provision  exists  in  most  charters 
in  providing  a  period  of  immunity  for  the  official 
during  which  he  may  have  an  opportunity  to  make 
good.  This  period  is  usually  six  months  in  length 
during  which  he  can  demonstrate  his  abilities  and 
capacity.     In  terms  of  office  at  least  four  years  in 


50  THE   CITY   MANAGER 

length  it  would  perhaps  be  well  to  extend  the  proba- 
tionary period  to  a  year.  Furthermore,  in  order  to 
prevent  the  office  from  becoming  vacant,  it  is  some- 
times provided  that  a  certain  per  cent,  of  the  elec- 
tors must  nominate  others  to  fill  the  position  of 
the  departing  official  before  his  recall  will  become 
complete. 

The  charter  of  Springfield  includes  a  wise  and 
just  provision.  It  requires  each  recall  petition 
briefly  and  succinctly  to  state  the  ground  of  com- 
plaint. The  official  is  thus  confronted  with  the 
charge  fairly  and  squarely  and  all  men  who  vote 
may  read  upon  the  face  of  the  charge  the  nature 
of  the  indictment. 

CONCLUSION 

These  city  manager  plans  embrace,  therefore,  the 
progressive  ideas  of  recent  years.  These  ideas  are 
adjuncts  of  the  plan.  How  necessary  to  its  opera- 
tion, how  vital  to  the  successful  working  of  the  plan 
they  may  be,  it  is  too  early  to  venture  a  conclusive 
opinion.  The  cautious  investigation  of  experts  re- 
sults in  the  recommendation  of  these  features  as 
fundamental  elements  in  its  successful  operation. 


CHAPTER   V 
THE  NEW  COMMISSION 

For  policy  one  must  elect,  and  for  efficiency  one  must 
appoint. 

Clinton  Rogers  Woodruff 

Happily,  the  idea  of  a  business  corporation  is 
largely  synonymous  with  efficiency,  in  the  minds  of 
the  American  people.  The  design  of  running  a  city 
in  the  same  excellent  way  was  received  with  pro- 
found satisfaction.  It  appealed  to  the  genius  and 
the  talents  of  the  electorate.  When  the  reformers 
talked  of  "boards  of  directors"  and  "managers"  and 
"auditing  systems,"  they  were  conversing  in  lan- 
guage that  needed  no  explanation.  Their  hearers 
were  already  experts  in  the  subject. 

The  selection  of  the  analogy  was  thus  a  fortui- 
tous one.  When  a  commission  was  proposed  to  ad- 
minister city  affairs  like  a  board  of  a  private  cor- 
poration, the  idea  met  with  vigorous  approval  for 
it  tickled  the  fancy  of  the  citizen.  So  the  commis- 
sion form  of  government  was  born  with  a  cogno- 
men that  predisposed  the  popular  mind  to  its  adop- 
5i 


52  THE   CITY   MANAGER 

tion,  even  if  the  circumstances  of  the  great  disaster 
in  Galveston  had  not  initially  started  it  well  on  its 
successful  way. 

The  Error. — The  idea  of  commission  govern- 
ment was  basically  good.  Yet  in  practice  it  was 
never  carried  far  enough  to  enrich  the  people  with 
the  full  meed  of  results  they  should  have  had.  As 
to  an  advisory  or  legislative  board  the  idea  was 
economically  and  politically  sound.  The  attempt 
has  been  made,  however,  in  all  forms  practically, 
except  the  city  manager  plan,'  to  combine  in  the 
commission  both  legislative  and  executive  functions. 
This  was  an  error.  The  old  system  of  checks  and 
balances  of  the  federal  plan  was  good  in  itself;  only, 
the  application  was  a  blunder.  When  the  commis- 
sion had  combined  in  itself  both  legislative  and 
executive  powers  the  advantages  of  the  checks  of 
one  division  of  government  on  the  other  were  lost. 

Remedy  in  the  City  Manager  Plan. — The  plan  of 
placing  an  executive  expert  in  charge  of  the  admin- 
istration of  the  municipality  eliminates  this  single 
objection.  The  commission  retains  its  legislative 
function,  its  advisory  capacity,  its  power  to  formu- 
late broadminded  policies  and  wise  plans.  Vital 
also  is  the  fact  that  where  the  personnel  of  the  com- 
mission is  not  required  to  devote  all  its  time  to  the 
details  of  administrative  labor,  in  which  such  mem- 


THE   NEW   COMMISSION  53 

\  bers  of  the  commission  generally  have  little  previous 
L_experience0  a  widely  different  type  of  man  is  se- 
cured as  a  commissioner.  An  able,  clear-sighted, 
successful  business  man  would  consent  to  act  as  a 
member  of  a  commission  purely  legislative  and  ad- 
visory, whereas  he  must  perforce  decline  to  sacri- 
fice his  business  by  giving  his  whole  time  to  so  un- 
lucrative  a  pursuit  as  the  administration  of  a  frac- 
tional part  of  a  city  government  demanding  all  of 
his  time.  Then  too  his  commendable  qualities 
should  not  be  taken  from  the  business  life  of  the 
city  where  they  are  already  radically  good  in  his 
position  as  a  progressive  citizen.  His  capacity  and 
experience  should  be  utilized  without  hampering  his 
business  productiveness  and  its  consequent  benefit 
to  the  community. 

The  city  manager  plan  recognizes  and  meets  this 
impediment  to  success.  It  places  the  commissioner 
in  a  position  which  his  previous  business  experience 
has  fitted  him  for,  namely,  advice  on  business  prob- 
lems. The  execution  is  left  to  an  expert  who  is 
highly  trained  in  that  field  of  endeavor  and  wholly 
competent  to  cope  with  it.  The  spheres  of  action 
of  the  advisor  and  administrator  are  wholly  dis- 
tinct and  separate. 

Charter  Provisions. — The  system  of  elections  un- 
der the  new  charters  usually  provides  for  a  primary 


54  THE   CITY   MANAGER 

election  for  commissioners.  They  are  nominated  by 
petitions  signed  by  a  certain  per  cent,  of  the  unregis- 
tered voters  of  the  municipality.  In  Dayton  it  is  2 
per  cent.  Those  candidates  receiving  the  highest 
number  of  votes,  in  a  number  double  the  size  of 
the  commission,  are  placed  on  the  final  ballot  with- 
out designation  of  party  or  presence  of  distinguish- 
ing emblem.  It  is  simply  a  question  of  the  candi- 
date himself.  Where  the  ballots  are  made  up  in 
tablet  form,  the  names  of  the  candidates  are  rotated 
so  that  there  is  no  advantage  of  one  man  over 
another. 

Abolition  of  Wards. — All  ward  lines  are  abol- 
ished and  the  election  is  generally  at  large.  In 
Hickory,  North  Carolina,  in  its  recent  charter,  a 
provision  is  made  for  nomination  from  wards,  but 
the  election  is  at  large.  In  La  Grande,  Oregon, 
preferential  voting  is  provided  with  the  usual  first, 
second  and  third  choices.  Phcenix,  Arizona,  pro- 
vides for  one  election,  nomination  by  primary,  and 
a  second  election  if  necessary  to  secure  a  majority 
vote  to  fill  one  or  more  vacancies. 

Qualifications  of  Commissioners. — The  prerequi- 
sites for  election  as  a  commissioner  are  as  varied 
as  the  number  of  charters.  Springfield  requires 
five  years'  residence  and  the  qualifications  of  an 
elector ;  Dayton  provides  no  time  limit  of  residence, 


THE   NEW   COMMISSION  55 

but  specifically  forbids  any  interest  of  the  commis- 
sioner in  public  contracts,  thus  wisely  enforcing  the 
Biblical  maxim  that  service  to  one  master  is  all  one 
man  can  successfully  render.  Favors,  free  tickets, 
passes  or  service,  direct  or  indirect  from  corpora- 
tions, persons  or  firms  upon  terms  more  advantage- 
ous to  the  recipient  than  those  generally  accorded  to 
the  public  are  universally  forbidden  to  the  commis- 
sioner. The  commissioner  is  set  apart  from  influ- 
ences of  gain,  fear  or  favor.  Springfield  forbids 
personal  solicitation  of  names  by  the  candidate,  for 
his  petition  of  candidacy;  only  the  channels  of  pub- 
lic address  and  the  public  press  are  open  to  him  to 
declare  his  beliefs  and  policies,  and  he  is  to  be 
known  and  elected  by  these  declarations  alone. 
Surely  the  old  order  is  changing.  The  proposed 
Lockport  plan  defines  the  qualifications  of  the  alder- 
man or  commissioner  to  "be  the  highest  non-profes- 
sional or  non-technical  qualifications  specified  for 
any  officer  under  the  charter." 

Term  of  Office. — The  term  of  office  varies  in  the 
several  cities.  In  La  Grande,  Oregon,  the  period  of 
incumbency  is  one  year;  in  Hickory,  North  Caro- 
lina, two  years;  while  in  Dayton  and  Springfield  it 
is  four  years.  The  latter  term  is  preferable  for 
otherwise  no  policy  ever  formulated  can  be  carried 
to  maturity  and  completely  tested  by  those  who 


56  THE   CITY   MANAGER 

inaugurated  it.  This  was  the  defect  in  the  old  gov- 
ernment, the  constant  vacillation  from  policy  to 
policy,  from  hobby  to  hobby,  as  new  mayor  suc- 
ceeded new  mayor,  and  new  councilman  followed 
new  councilman.  In  nearly  all  these  charters  pro- 
vision is  made  for  election  at  periods  during  the 
total  time  of  office  tenure  so  that  new  men  are  con- 
stantly being  made  members  without  a  wholesale 
change  of  personnel  of  the  body.  For  instance,  in 
Dayton,  there  is  an  election  every  two  years  for 
two  men  for  four  years  of  service  and  every 
other  two  years  for  three  men  for  four  years  of 
office. 

Mayor. — In  the  last-named  city,  in  the  election 
at  which  the  places  of  three  members  in  its  com- 
mission are  filled,  the  candidate  receiving  the  high- 
est number  of  votes  is  declared  mayor.  To  extend 
the  simile  of  modern  business  organization,  the 
mayor  in  a  city  under  the  commissioner  manager 
form  of  government  is  chairman  or  president  of 
the  board  of  directors,  or  chairman  of  the  executive 
committee.  He  is  still  the  official  head  of  the  gov- 
ernment with  retention,  in  many  cases,  of  his  power 
in  case  of  riot  or  other  disaster,  to  command  the 
police  force  and  govern  by  proclamation ;  he  is  still 
recognized  head  of  the  government  for  service  of 
civil  process  by  the  courts  and   respected  by  the 


THE   NEW   COMMISSION  57 

citizens  as  head  of  the  municipality  for  ceremonial 
purposes. 

The  mayor  is  now  shorn  of  his  veto  power.  He 
has  a  vote  and  voice  in  the  acts  and  proceedings  of 
the  commission,  but  his  old  potency  as  a  separate 
factor  in  legislation  with  power  to  block  at  will 
much  that  was  enacted,  has  been  taken  from  him. 
As  a  presiding  officer,  the  new  mayor  is  chosen  for 
his  sagacity  and  good  judgment  and  business  abil- 
ity ;  he  is  not  chosen  as  an  administrator,  nor  as  one 
to  act  in  a  judicial  capacity,  nor  as  a  political  figure- 
head, nor  as  a  man  with  an  attractive  hobby  to 
ride  at  the  expense  of  the  city. 

The  question  will  sometimes  arise,  what  is  the 
proper  procedure  when  a  mayor  is  recalled.  In  the 
Dayton  charter  it  is  provided,  that  the  commission- 
ers shall  select  one  of  the  remaining  number  as 
mayor,  or,  if  all  commissioners  are  recalled,  then,  of 
the  newly  elected  commissioners,  the  one  receiving 
the  highest  vote  shall  be  adjudged  mayor. 

Salaries. — There  has  been  a  general  readjustment 
in  salaries  paid  the  city  officials.  The  compensation 
paid  the  mayor  of  Dayton  is  $1,800  per  annum, 
and  each  of  the  commissioners  receives  $1,200.  In 
connection  with  this  provision,  Dayton  makes  this 
peculiar  reservation:  that  absence  of  any  commis- 
sioner  from  a  regular  meeting  of  a  commission. 


THE   NEW   COMMISSION  55 

unless  authorized  by  a  majority  vote  of  that  body, 
shall  automatically  cause  a  reduction  of  1  per  cent, 
of  the  annual  salary;  and  absence,  unauthorized  by 
the  commission,  for  five  consecutive  meetings  "op- 
erates to  vacate  the  seat  of  a  member."  It  is  evi- 
dently intended  that  a  man  must  attend  to  business 
in  this  city  of  newer  ideals.  Similar  provisos  and 
penalties  are  found  in  other  charters  under  the  city 
manager  plan.  Likewise,  there  is  often  a  specifica- 
tion that  the  meetings  must  occur  not  less  than  a 
stated  number  of  times  per  year. 

Division  of  Powers. — The  scope  of  powers  ac- 
corded to  the  new  commission  is  distinctly  referable 
to  late  experiences  with  these  newer  forms  of  gov- 
ernment. It  is  a  return  to  the  division  of  powers, 
devolving  the  legislative  responsibilities  upon  a 
board  and  the  administrative  upon  an  individual. 
The  combination  of  the  two  functions  in  one  organi- 
zation is  inimical  to  the  best  that  can  be  had  from 
the  ideas  behind  the  promotion  of  the  modern  mu- 
nicipalities. Our  national  tradition  of  separation  of 
the  two  powers  has  not  proved  the  fallacious  theory 
reformers  would  have  had  us  believe. 

Publicity. — A  very  wise  precaution  is  that  which 
provides  that  all  meetings  of  this  commission  are  to 
be  public  and  that  the  people  are  to  have  access  to 
all  the  minutes  and  records  detailing  their  proceed- 


60  THE   CITY   MANAGER 

ings.  This  has  been  found  to  be  an  essential  right 
in  private  corporations,  and  the  citizen  is  no  less 
than  a  stockholder  in  the  public  corporation.  These 
advanced  charters  are  more  and  more  looking  to 
this  fundamental  requirement  of  publicity;  but  be- 
fore we  can  have  the  results  these  provisions  con- 
template, the  chief  est  requirement  will  be  to  make 
these  records  understandable  by  the  ordinary  person 
without  expert  knowledge.  Provisions  are  em- 
bodied in  many  places  in  these  instruments  under 
which  the  newer  governments  operate,  which  have 
this  end  in  contemplation,  providing  for  simpler 
accounts,  simpler  auditing  systems,  publication  of 
readable  reports,  condensed,  epitomized,  and  ana- 
lyzed for  the  rapid  and  intelligent  understanding  by 
the  voters  of  the  acts  of  the  governing  officials. 
Municipal  bureaus  of  research  have  done  much 
toward  giving  this  required  publicity  and  coopera- 
tion, and  toward  promoting  intelligent,  reliable  pub- 
lication of  essential  pieces  of  civic  information. 
They  have  been  marvelous  factors  for  the  education 
of  the  citizen  body  for  the  comprehensive  under- 
standing of  puzzling  difficulties.  As  an  instance 
of  this,  the  Dayton  bureau  has  been  a  typical  case 
of  the  virtues  of  such  an  organization. 

Public  Hearings. — It  is  set  forth  in  the  provisions 
for  enactment  of  the  appropriation  ordinance,  in 


THE   NEW   COMMISSION  61 

Dayton's  charter,  that  a  time  and  place  shall  be 
fixed  for  public  hearings  on  the  tentative  ordinance, 
and  that  public  notice  shall  be  given  of  the  hearings. 
After  the  public  hearing,  but  before  the  commission 
passes  the  ordinance,  it  is  to  be  published  in  parallel 
with  the  recommendation  of  the  city  manager.  The 
ordinance  cannot  be  passed  till  ten  days  shall  have 
elapsed  after  its  publication,  and  never  before  the 
second  Monday  in  January.  Expert  advice,  public 
opinion  and  discussion,  and  time  for  sober  thought 
will  all  enter  in  their  proportionate  parts  into  the 
final  enactment  of  a  sound  financial  program  for 
the  year.  It  is  a  measure  fraught  with  advantage 
for  government  and  people.  The  government  offi- 
cials cannot  be  blamed  for  not  taking  the  people 
into  their  confidence;  and  it  places  the  burden  of 
knowing  the  situation  on  those  most  vitally  con- 
cerned, namely,  the  taxpayers.  This  appropriation 
is  final  and  money  cannot  be  drawn  before  the  hear- 
ing, or  any  obligation  entered  into  for  an  expendi- 
ture except  in  accordance  with  this  fiscal  method. 
The  commission  has  power,  however,  upon  recom- 
mendation of  the  city  manager,  to  apply  unexpended 
balances,  after  an  object  has  been  accomplished,  to 
the  completion  of  objects  also  contemplated,  but 
lacking  enough  funds  to  consummate  them. 

Springfield  has  provided  the  excellent  scheme  of 


62  THE   CITY   MANAGER 

the  publication  of  ordinances  of  a  permanent  or 
general  nature  once  within  ten  days  after  final  pas- 
sage. Special  form  for  general  notice  of  public 
improvements  is  also  provided  in  addition  to  notice 
to  be  served  on  interested  property  holders. 

Powers  of  Commission. — Under  the  commission 
manager  form  of  government  two  distinct  powers 
are  accorded  the  commissioners :  first,  a  limited 
appointive  power,  and,  second,  legislative  power. 
The  appointive  power  is  vested  in  them  because  the 
proposed  personnel  of  the  commission  is  such  that 
it  is  capable  of  selecting  the  major  executive, 
and  this  power  is  limited  because  it  should  be  left 
to  the  major  executive  himself  to  select  those  for 
whose  work  and  efficiency  he  will  be  responsible. 
The  commissioners  are  granted  power  to  pass  ordi- 
nances, for  thus  they  can  promulgate  in  tangible 
form  the  policies  they  may,  in  the  light  of  their 
experience,  determine  upon ;  in  ordinances  they  can 
embody  the  plans  and  measures  the  city  manager 
may  propose  to  them  in  his  advisory  capacity,  which 
they  shall  deem  expedient. 

Appointive  Pozver. — The  duty  of  selection  of 
the  city  manager  rests  upon  the  commission.  They 
find  him,  determine  the  salary  according  to  the 
man,  and  appoint  him  to  the  position.  There  is  no 
ratification,  except  a  negative  sort  which  may  be 


THE   NEW   COMMISSION  63 

evidenced  by  the  electorate  in  recalling  the  commis- 
sion or  the  city  manager.  In  Springfield,  the  com- 
mission appoints  the  city  manager,  the  city  solicitor, 
city  auditor,  city  treasurer,  purchasing  agent,  sink- 
ing fund  commissioner,  and  civil  service  commis- 
sioner. In  Dayton,  the  commission  appoints  the  city 
manager,  civil  service  board,  and  the  clerk  of  the 
commission.  In  Hickory,  North  Carolina,  the  coun- 
cil appoints  the  city  manager,  city  attorney,  city 
treasurer,  city  physician,  the  board  of  school  visi- 
tors, superintendent  of  schools,  and  the  judge  of  the 
municipal  court.  In  the  last-named  city,  the  local 
judiciary  and  educational  system  are  identified 
with  the  city  government.  In  towns  of  any  size 
this  is  a  provision  of  very  doubtful  wisdom.  The 
judiciary  should  be  conspicuously  independent  of 
current  municipal  problems,  and  should  be  so  indi- 
vidual as  to  be  outside  of  politics  as  far  as  possi- 
ble, yet  constantly  subject  to  the  independent, 
searching  scrutiny  of  the  public  whom  it  serves. 
The  municipal  judiciary  systems  are  problems  in 
themselves.  In  Hickory,  also,  certain  subordinate 
officers  are  appointed  by  the  council  from  lists  sub- 
mitted by  the  city  manager  for  the  police,  fire,  street, 
waterworks  and  sewerage  departments ;  and  officers 
are  appointed  to  positions  in  the  health  department 
from  a  list  submitted  by  the  city  physician  and  in 


64  THE   CITY   MANAGER 

the  school  department  from  a  list  supplied  by  the 
superintendent  of  schools.  There  are  no  civil 
service  provisions  in  that  city. 

In  La  Grande,  Oregon,  the  general  manager  and 
municipal  judge  are  appointed  by  the  commission  of 
three  members.  There  are  no  civil  service  provi- 
sions. In  Phoenix,  Arizona,  the  commission  ap- 
points the  city  manager,  the  city  magistrate  and 
city  auditor,  unrestricted  by  civil  service  require- 
ments. 

Miscellaneous  Boards:  Civil  Service. — The  civil 
service  board  stood  alone  in  all  former  govern- 
ments as  the  sole  attempt  to  introduce  efficiency. 
In  the  old  governments  this  was  well  enough  as 
far  as  it  went,  but  it  only  provided  for  the  prerequi- 
site of  efficiency  to  secure  the  job,  and  provided 
nothing  for  continued  efficiency  in  the  same  posi- 
tion; and  arranged  nothing  looking  to  the  grada- 
tion of  a  salary  according  to  the  amount  of  labor 
the  position  entailed,  the  amount  of  training  pre- 
liminary to  the  successful  discharge  of  its  duties; 
nor  was  there  ever  required  to  be  kept  a  record  of 
the  subsequent  conduct  of  the  successful  candidate 
in  actual  performance  of  duty,  after  his  final  quali- 
fication resultant  from  a  probationary  period  during 
the  first  few  months  of  service.  It  is  human  to  let 
down  in  activity  after  the  first  blush  of  newness 


THE   NEW   COMMISSION  65 

and  when  ambition  wears  off  and  the  occupant  of 
the  position  falls  into  a  rut.  In  private  commercial 
life  to  hold  your  place  in  a  business  organization, 
eternal  efficiency  is  the  price  of  place.  This  funda- 
mental maxim  seldom  seems  to  have  appealed  to 
the  city  governments.  Even  when  political  consid- 
erations were  somewhat  swept  aside  by  the  meri- 
torious civil  service  provisions,  yet  nothing  was  sub- 
stantially provided  to  secure  for  the  future  contin- 
ued adequate  zeal  of  officials,  which  is  most  impor- 
tant of  all.  Many  men  can  qualify  under  the  spur, 
but  real  efficiency  records  are  writ  despite  the  daily 
grind  of  current  monotonous  events. 

Equal  Pay  for  Equal  Work. — In  this  latest  of 
charters  adopted  by  the  city  of  Dayton,  it  is  pro- 
posed to  give  equal  pay  for  equal  work.  This  may 
seem  a  strange  thing  for  a  progressive  city  to  be 
just  waking  up  to ;  nevertheless,  under  the  old  gov- 
ernment, an  assistant  solicitor  with  professional 
training  received  $2,000  per  annum,  while  a  record 
clerk,  with  no  large  amount  of  preliminary  prepara- 
tion and  only  meager  work,  drew  the  same  salary. 
That  was  a  triple  injustice :  injustice  first  to  the 
other  employees,  injustice  to  the  city  which  did  not 
get  what  it  was  paying  for,  and  injustice  to  the  long- 
suffering  taxpayer.  To  take  the  new  civil  service 
board  of  Dayton  as  typical,  it  is  to  be  composed  of 


66  THE   CITY   MANAGER 

three  members  of  six  years'  tenure,  one  appointed 
every  two  years  by  the  commission.  Any  member 
of  the  board  may  be  removed  by  the  commission 
upon  written  reasons  being  presented  and  a  hearing 
afforded  in  defense ;  vacancies  are  filled  by  the  same 
body.  The  civil  service  board  elects  its  own  chair- 
man from  its  number;  selects  its  secretary,  who  is 
the  chief  examiner  and  the  employment  officer  for 
the  classified  service  of  the  city;  and  appoints  such 
other  subordinates  as  an  appropriation  is  made  for. 
Rules. — The  board  enacts  its  code  of  rules,  to  be 
approved  by  the  commission.  This  code  has  for 
its  object  the  appointment  of  officials  upon  a  basis 
of  merit,  efficiency,  character  and  industry,  which 
rules  have  all  the  effect  of  law.  Promotion  in  the 
classified  service  is  provided  by  the  board  to  be 
made  as  the  records  of  merit,  efficiency,  character, 
conduct  and  seniority  may  justify.  The  word  "rec- 
ords" marks  a  signal  departure  in  charter  framing. 
At  last  we  are  entered  upon  an  era  of  proof  of 
proficiency,  rather  than  proof  of  political  affiliation. 
The  probationary  period  of  six  months  is  still  pres- 
ent. No  discharge  or  removal  of  a  department 
head  or  city  manager  is  final  until  the  aggrieved 
shall  be  heard  by  the  board  in  his  own  defense  in 
response  to  written,  specific  charges.  This  new  gov- 
ernment is  setting  out  to  have  short-handed  justice 


THE   NEW   COMMISSION  67 

too.  Before  an  official  can  be  paid  as  a  member  of 
the  force  rightfully  appearing  on  the  payroll,  the 
payroll  must  be  certified  to  by  the  board;  a  wise 
check  indeed. 

Standards. — Furthermore,  the  employees  covered 
by  civil  service  rules  are  forbidden  to  display  any 
political  activity;  but  no  discrimination  is  to  be 
made  because  of  religious  belief,  race,  or  political 
affiliation.  The  board  determines  the  penalties  for 
the  violation  of  this  rule. 

Compensation. — The  commission  is  to  determine 
and  appropriate  the  salaries  of  members  of  the 
board  and  the  subordinates,  providing  at  the  same 
time  a  sum  adequate  to  secure  the  operation  of  the 
provision.  In  this  connection,  it  is  to  be  remarked 
that  the  commission  fixes  by  ordinance  the  compen- 
sation of  department  heads,  of  the  city  manager,  the 
compensation  of  the  members  of  the  police  and  fire 
force  who  are  under  the  immediate  control  of  the 
chief,  of  the  members  of  boards  in  the  unclassified 
service  of  the  city.    The  salaries  will  be  uniform. 

In  the  matter  of  boards  there  should  be  men- 
tioned the  trustees  of  the  sinking  fund.  In  Dayton 
it  is  provided  that  the  commissioners,  city  manager, 
and  director  of  finance  shall  constitute  the  trustees, 
the  mayor  being  president  and  the  director  the  sec- 
retary. 


68  THE   CITY   MANAGER 

Springfield  provides  that  the  members  of  its  civil 
service  board  shall  serve  without  pecuniary  com- 
pensation. In  the  matter  of  boards,  it  also  provides 
that  additional  ones  may  be  constituted  by  the  com- 
mission to  advise  the  commission,  the  manager,  or 
heads  of  the  departments  with  respect  to  the  conduct 
and  management  of  any  property,  institution  or  pub- 
lic function  of  the  city.  The  members  of  such 
consulting  boards  are  to  serve  without  compensa- 
tion. This  plan  has  the  sterling  recommendation  in 
that  it  enlists  intimately  the  active  service  of  the 
leading  citizens,  calling  upon  them  to  contribute 
their  share  in  special  cases  for  which  their  abilities 
peculiarly  adapt  them.  The  closer  the  citizen  is  to 
the  management  of  his  city,  the  better  the  city.  It 
is  the  age-old  problem  of  keeping  up  the  interest 
of  the  electorate. 

Power  of  Commission:  Legislation. — The  com- 
mission has  a  second  general  power,  that  of  legisla- 
tion. It  may  pass  ordinances  granting  franchises 
which,  like  all  measures  it  may  enact,  shall  be  sub- 
ject to  the  initiative  and  referendum.  This  prin- 
ciple has  one  exception  in  the  case  of  emergency 
measures.  A  franchise  ordinance,  however,  is  not 
considered  an  emergency  measure.  The  city  is  at 
liberty  to  terminate  a  franchise  at  will  upon  speci- 
fied terms  or  to  purchase  the  utility,  yet  no  ordi- 


\ 


THE   NEW   COMMISSION  69 


nance  is  valid  unless  the  value  of  the  franchise  is 
excluded  from  the  purchase  valuation  of  the 
property. 

Scope  of  Ordinances. — Appropriations  are  en- 
forced and  salaries  determined  by  ordinance.  The 
commission,  in  one  city,  may  at  any  time  borrow 
money  or  authorize  the  issuance  of  notes  or  bonds 
therefor  in  anticipation  of  the  collection  of  assess- 
ments, levied  for  the  purpose  of  paying  the  cost 
of  certain  public  improvements.  The  commission 
customarily  establishes  rules  of  bidding  for  public 
contracts.  Ordinances  may  furthermore  be  sub- 
mitted to  the  commission  by  initiative  and  passed, 
amended,  or  rejected  as  they  see  fit.  Even  emer- 
gency ordinances  are  subject  to  referendum,  except 
that  they  go  into  immediate  effect  and  continue  in 
operation  until  rejected  by  the  voters,  but  the  ordi- 
nance is  authority  for  all  things  done  in  pursuance 
of  it  prior  to  its  rejection.  The  commission  may 
also  order  proper  investigations  of  the  acts  of  any 
official  and  it  has  power  to  subpoena  witnesses,  hear 
testimony,  and  compel  production  of  books  for  per- 
tinent purposes. 

Advisory  Boards. — It  is  the  spirit  of  our  times  to 
employ  commissions,  committees,  or  boards  to  in- 
vestigate; it  is  the  temper  of  the  public  to  employ 
specialists  for  unconventional  jobs. 


;o  THE   CITY   MANAGER 

A  municipal  administration  needs  such  a  body 
of  men  to  assist,  and  it  needs  experts.  To  secure 
the  proper  personnel  as  a  permanent  feature  was 
too  costly.  A  happy  compromise  has  been  employed 
in  the  commission  manager  plan.  A  board  of  ex- 
perts is  selected  and  asked  to  serve  in  an  advisory 
capacity  for  a  restricted  particular  purpose.  The 
specialists  are  thus  secured  and  complimented,  and 
serve  without  the  onerous  burden  of  extensive  du- 
ties, to  their  own  and  the  city's  benefit. 

Springfield  provides : 

"The  city  commission  at  any  time  may  appoint 
an  advisory  board  or  boards  composed  of  citizens 
qualified  to  act  in  an  advisory  capacity  to  the  city 
commission,  the  city  manager  or  the  head  of  any 
department,  with  respect  to  the  conduct  and  man- 
agement of  any  property,  institution  or  public  func- 
tion of  the  city.  The  members  of  any  such  board 
shall  serve  without  compensation  for  a  time  fixed 
in  their  appointment,  or  at  the  pleasure  of  the  com- 
mission; and  their  duty  shall  be  to  consult  and 
advise  with  such  municipal  officers  and  make  writ- 
ten recommendations  which  shall  become  part  of 
the  records  of  the  city." 

Dayton  provides: 

"The  Commission  may  appoint  a  City  Plan  Board 
and  upon  the  request  of  the  City  Manager  shall 


THE   NEW   COMMISSION  71 

appoint  advisory  boards.  The  members  of  such 
boards  shall  serve  without  compensation  and  their 
duty  shall  be  to  consult  and  advise  with  the  various 
departments.  The  duties  and  powers  thus  created 
shall  be  prescribed  by  ordinance." 

These  provisions  permit  the  appointment  of  the 
city's  best  talent,  and  perhaps  even  outside  persons 
of  skill  in  the  particular  field  the  board  is  appointed 
to  investigate.  City  plan  boards,  commissions  to 
investigate  the  accounting  system  or  the  water  sys- 
tem, river  and  harbor  experts,  and  building  code 
specialists,  are  a  few  of  the  many  types  of  men 
from  which  such  advisory  boards  are  to  be  recruited. 
English  and  German,  as  well  as  the  French,  city 
governments  have  long  realized  the  value  of  com- 
missions and  committees  to  administer  civic  affairs; 
while  not  of  the  exact  type  of  the  present  boards 
in  question,  yet  in  many  cases  unpaid  civilian  mem- 
bers, as  in  Germany,  have  been  used  on  boards  to 
administer  particular  departments  or  municipal  ven- 
tures in  some  special  field.  It  is  a  commendable 
practice  which  should  be  extensively  developed. 

Trustees  of  Public  Trusts. — The  commissioners 
are  the  trustees  of  the  public  trust:  they  are  the 
connecting  links  between  the  people  and  the  man- 
ager. As  a  board  of  legislators,  they  mold  the 
policy  of  the  administration;  as  a  board  of  direc- 


72  THE   CITY   MANAGER 

tion,  they  appoint  and  select  the  agency  of  execu- 
tion. The  commission  is  the  balance  wheel  of  the 
machinery  of  government,  acting  as  a  check  on  the 
one  hand  on  the  facile  popular  will  and  on  the 
other  hand  acting  as  a  restraining  and  guiding 
agency  in  the  affairs  of  the  city  manager.  The 
powers  of  this  new  commission  are  not  diminished 
in  importance  as  compared  with  what  they  were  in 
other  commission  governments,  but  merely  adjusted 
more  nicely  to  the  delicate  requirements  of  munici- 
pal administration. 


CHAPTER   VI 
THE  CITY  MANAGER 

The  ingenuity  of  each  generation  has  developed  quicker 
and  better  methods  for  doing  every  element  of  the  work 
in  every  trade.  Frederick  Winslow  Taylor 

The  Old  School. — Municipal  management  is  an 
arduous  art.  There  is  no  other  species  of  business 
specialty  which  duplicates  it  for  the  requirements  of 
sagacity  and  tact  and  constructive  leadership.  No 
variety  of  industrial  organization  is  fraught  with 
more  difficulties  of  economy,  of  efficiency,  of  abso- 
lute control  imposed  upon  one  competent  man.  Yet 
for  decades  we  have  flouted  the  idea  that  the  public 
corporation  is  different  from  other  businesses.  We 
blithely  assumed  that  the  average  city  official,  se- 
lected on  the  basis  of  political  influence,  was  en- 


dowed with  God-given  faculties  of  administrative 
ability.  We  calmly  assumed  that  private  corpora- 
tions and  public  corporations  were  different  on  the 
business  side  and  yet  we  have  straightway  put  into 
office  men  who,  at  best,  had  had  experience  with 
only  one  form  of  corporation.     We  thought  that  a 

73 


74  THE   CITY   MANAGER 

group  of  men  of  no  particularly  tested  fitness,  al- 
lowed a  short  period  of  power,  with  no  well-de- 
fined policy,  or,  at  all  events,  merely  a  hobby,  could 
run  a  many-million  dollar  corporation  with  the 
triple  aspect  of  a  business  and  a  human  and  a  gov- 
ernmental side.  We  paid  small  salaries  to  men  of 
minute  experience  with  conflicting  interests  and 
tempting  opportunities  for  enriching  themselves  at 
public  expense.  And  then  we  wondered  where  our 
taxes  went  and  why  results  did  not  come  in  the 
fabled  way  of  Aladdin's  Lamp. 

Tradition  shackles  genuine  advance.  It  has  been 
tradition  for  the  cities  to  be  wasteful;  it  has  been 
tradition  for  them  to  be  inefficient  and  then  to 
blame  the  vicious  result  upon  corrupt  practices;  it 
has  been  tradition  to  pay  for  a  great  deal  we  never 
received  and  to  suffer  for  the  carelessness  we  voted 
for  others  to  commit.  Tradition  scorned  the  idea 
of  an  executive  specially  trained  in  the  technical 
work  of  civic  administration. 

Lately  the  citizens  have  stood  at  the  gateway  of 
a  new  day.  It  was  either  a  break  with  the  ancient 
forms  or  a  continued  living  with  tradition  and  old 
ideals  and  bankruptcy.  Many  are  choosing  the 
former. 

Promulgation  of  commission  government  was  fine 
work  in  the  rearrangement  of  the  old  units  of  gov- 


76  THE   CITY   MANAGER 

ernment.  Creation  of  the  office  of  city  manager 
was  a  genuine  departure  into  an  unexplored  realm 
of  administration.  In  the  designation  of  a  city 
manager  there  was  proposed  a  new  officer  with  orig- 
inal duties  and  fresh  powers.  What  a  tempting 
problem  in  constructive  politics! 

The  City  Manager. — The  city  manager  is  an  ap- 
pointive officer  selected,  by  reason  of  his  peculiar 
knowledge  of  municipal  affairs  and  because  of  his 
administrative  ability,  to  fill  the  position  of  chief 
executive  of  a  vast  public  corporation,  with  little 
restriction  upon  his  power  and  with  only  one  com- 
mand— produce  results.  He  has  been  denned  as  "a 
competent,  experienced,  trained  and  capable  person 
selected  on  account  of  his  peculiar  fitness  and  ability 
to  manage  the  affairs  of  the  city." 

Qualifications. — Municipal  managership  is  a  new 
profession.  As  the  requirements  of  the  office  are 
largely  untried,  the  charter  framers  displayed  keen 
foresightedness  in  making  the  qualifications  for 
service  of  broad  general  character  without  regard 
to  hampering  details.  Theirs  was  the  intent  to  se- 
cure the  best  man  at  a  price  which  would  be  justi- 
fied by  the  results  he  would  produce.  These  pro- 
visions as  to  his  qualifications  are  so  general  and 
so  liberal  in  their  tendencies  that  the  restrictions 

take  on  merely  a  negative  character.    For  instance, 
/ 


THE   CITY   MANAGER  77 

the  charters  generally  state  that  the  city  manager 
need  not  be  selected  from  citizens  resident  in  the 
city,  but  may  be  appointed  from  any  locality,  as  it  is 
a  question  of  ability  rather  than  residence. 

Dr.  Washington  Gladden  at  the  Conference  of 
Ohio  Cities  in  19 12  said: 

"Still  another  shackle  would  be  broken  if  our 
new  constitution  should  remove  all  those  limita- 
tions by  which  the  people  are  restricted,  in  select- 
ing their  officials,  to  residents  of  their  own  city. 
Why  should  not  the  city  corporation  be  free  in 
choosing  its  employees — to  take  them  wherever  it 
can  find  them — to  get  the  best  men  without  any 
reference  to  their  place  of  residence?  No  business 
corporation  would  submit  to  such  a  restriction,  that 
it  should  employ  in  an  executive  capacity  none  but 
its  own  stockholders  or  none  but  residents  in  its 
own  community.  Cases  often  arise  in  which  far 
more  efficient  service  might  be  secured  by  going 
outside  of  the  municipality.  For  special  services  we 
sometimes  do  go  outside;  but  why  should  we  limit 
ourselves  at  all?  It  is  sometimes  assumed  that  a 
resident  of  the  neighborhood  would  know  the  peo- 
ple better,  and  would  then  be  able  to  serve  them 
more  acceptably;  but  the  fact  is  that,  as  a  rule,  the, 
less  people  a  municipal  officer  knows,  the  better  it 
is  for  the  service.     The  great  curse  of  municipal 


;8  THE    CITY   MANAGER 

government  arises  from  the  fact  that  the  officials 
know  too  many  people,  and  are  under  too  many 
obligations.  It  will  take  a  competent  executive  but 
a  very  short  time  to  get  all  the  knowledge  of  local 
conditions  that  will  be  of  any  use  to  him." 

His  personal  qualifications  above  all  are  essential. 
His  political  beliefs  are  especially  mentioned  as  a 
thing  which  shall  not  be  considered  a  bar  in  any 
way  whatsoever  to  his  candidacy.  The  test  of  poli- 
tics is  a  dead  letter;  the  measurement  of  efficiency 
is  a  live  issue. 

So  much  for  the  general,  though  meager,  qualifi- 
cations so  briefly  enumerated  by  the  charters.  They 
are  chiefly  concerned  with  what  he  is  not  to  be. 
The  unspoken  qualifications,  undoubtedly  the  chief- 
est  in  the  make-up  of  a  man  in  such  a  position  are, 
first,  absolute,  unswerving  adherence  to  his  own 
view  that  efficiency,  and  hence  results  for  the  city, 
is  the  paramount  thing;  second,  administrative  ex- 
perience in  business  involving  the  maintenance  of 
engineering  works  and  the  necessary  technical  edu- 
cation; and  third,  the  ability  to  lead  through  tact 
as  well  as  knowledge. 

The  New  Profession's  Personnel — The  city  man- 
agers selected  for  Staunton,  Sumter,  Springfield 
and  Dayton  have  preeminently  these  qualities.  The 
selections  in  each  case  by  the  commissions  have  been 


THE   CITY   MANAGER  79 

the  result  of  patient  search  and  careful  thought  and 
profound  study  of  what  were  the  requirements  of 
the  position  and  qualities  which  one  should  have  to 
adequately  fill  it. 

The  first  city  managers  of  Dayton  and  Springfield 
are  illustrative  of  the  type  of  men  required  for  the 
position.  Mr.  H.  M.  Waite  was  appointed  city 
manager  of  Dayton.  He  is  a  civil  engineer  by 
profession,  graduating  from  the  Massachusetts  In- 
stitute of  Technology.  He  has  been  superintendent 
of  maintenance  of  way  and  superintendent  of  vari- 
ous divisions  of  the  large  railways  of  this  country. 
He  made  a  remarkable  record  as  city  engineer  for 

the  city  of  Cincinnati.     In  that  position  he  distin- 
1 

guished  himself  for  efficiency  of  administration,  a 
knowledge  of  civic  affairs  and  an  absolute  unswerv- 
ing loyalty  to  the  idea  of  efficiency  in  public  office. 
Equipped  with  a  profound  sense  of  the  importance 
of  public  service,  he  chose  his  subordinates  with  an 
eye  to  their  ability  to  serve  the  people  rather  than 
a  political  machine ;  he  was  subservient  to  no  party 
and  to  the  dictates  of  no  ascendant  political  organi- 
zation. At  the  time  of  his  assumption  of  office  on 
January  1,  19 14,  in  the  city  of  Dayton,  he  was 
forty-three  years  of  age,  a  man  of  wide  technical 
and  administrative  experience,  possessing  a  record 
of  efficient  service  under  that  advanced  administra- 


So  THE   CITY   MANAGER 

tion  in  the  city  of  Cincinnati  in  the  late  regime  of 
Mayor  Hunt.  A  most  telling  indication  of  his  pol- 
icies was  his  first  statement  upon  the  assumption  of 
power  in  his  new  position.  "I  insist,"  he  said, 
"when  I  employ  men  for  work  in  my  department 
that  they  be  selected  for  their  efficiency  and  not  be- 
cause of  any  political  affiliation  or  in  payment  of 
any  political  debts,  and  this  same  policy  I  expect  to 
adhere  to  in  Dayton."  That  is  a  platform  well 
worth  while  indeed. 

The  city  manager  of  Springfield  is  another  man 
with  a  record  of  most  excellent  service.  Mr.  Charles 
E.  Ashburner,  also  aged  forty-three,  lately  of  Lynch- 
burg, Virginia,  was  selected  first  city  manager  for 
the  city  of  Springfield.  He  is  a  native  of  England, 
the  son  of  an  officer  in  the  English  army.  After 
an  excellent  education  in  Germany  and  France  he 
came  to  America  and  found  his  first  employment 
as  civil  engineer  in  the  Rivers  and  Harbors  Bureau 
of  the  United  States.  Later,  he  was  engaged  by 
a  contracting  firm  on  engineering  projects  in  vari- 
ous countries  of  the  world  and  then  was  employed 
by  a  railway  in  its  engineering  department.  His 
first  municipal  experience  was  in  Staunton,  Virginia, 
where  he  became  city  manager,  when  the  general 
manager  was  installed  there.  He  was  therefore 
probably  the  first  city  manager  in  America ;  further- 


THE   CITY   MANAGER  81 

more,  he  installed  the  excellent  city  manager  system 
now  in  force  in  Sumter,  North  Carolina.  After 
that,  he  went  back  to  his  profession  from  which  he 
was  called  lately  to  assume  the  place  of  chief  execu- 
tive of  this  city  of  fifty  thousand. 

When  the  commission  selects  the  city  manager,  it 
is  a  part  of  its  power  to  fix  his  salary.  The  spirit 
of  the  charters  in  the  larger  cities,  as  in  Spring- 
field and  Dayton,  is  to  have  the  best  at  any  price. 
The  commissioners  are  at  liberty  to  bargain  with  a 
prospective  candidate  in  regard  to  the  place  and  to 
secure  the  best  man  their  finances  will  justify,  ac- 
cording to  the  customary  method  in  the  business 
world. 

To  the  uninitiated  sometimes  the  salary  of  a  city 
manager  looks  high.  It  is,  and  in  this  matter  of 
high  salaries  lies  a  grave  danger  for  the  success 
of  the  plan.  A  large  salary  can  only  be  justified 
when  its  recipient  saves  the  city  the  excess  and 
more  by  his  economy  of  administration  without 
impairment  of  results.  A  high  salary  is  economy 
when  it  purchases  ability  which  enables  the  public 
corporation  not  only  to  pay  the  man,  but  to  secure 
results  and  produce  a  profit  instead  of  the  usual 
yearly  deficit.  It  is  not  a  matter  of  extravagance  or 
erroneous  business  policy  to  pay  the  head  of  a  pri- 
vate corporation,  numbering  its  assets  in  the  mil- 


82  THE   CITY   MANAGER 

lions,  an  excellent  salary.  No  more  should  it  be 
unsound  policy  to  pay  well  a  man  who  administers 
a  public  corporation  of  like  tangible  value,  and  of 
far  more  import  to  the  citizens,  who  are  stockhold- 
ers in  it  in  a  thousand  intangible  ways.  For  the 
very  life  of  the  citizenry  itself  is  bound  up  in  the 
sane  determination  of  the  city's  affairs.  It  is  a  vital 
fact  of  existence  itself  which  demands  that  we 
should  pay  the  price,  if  we  only  secure  that  effi- 
ciency which  means  health  and  protection  and  the 
opportunity  to  produce  as  we  should.  Both  business 
and  social  reasons  proclaim  it  a  wise  thing  indeed 
to  pay  well  a  competent  man  who  will  make  these 
things  possible.  Believing  this  to  be  true,  the  little 
city  of  Staunton  pays  her  manager  $2,500  per 
annum;  Sumter  pays  $3,300;  Springfield  pays 
$6,000;  and  Dayton  pays  $12,500.  These  are 
goodly  annual  sums,  but  if  the  theory  of  the  new 
government  upon  which  these  salaries  are  paid  is 
carried  out,  there  will  be  ample  justification  in  the 
resulting  economy. 

The  selection  of  the  manager  devolves  solely  on 
the  commission.  It  is  a  very  vital  task  and  one 
of  profound  moment  to  the  people.  It  is  of  telling 
importance  to  the  commissioners  themselves,  for 
their  success  as  a  body  depends  largely  upon  the 
qualities  which  the  man  they  select  possesses.    It  be- 


THE   CITY   MANAGER  83 

hooves  them  to  weigh  with  exceeding  care  this,  the 
chief  est  officer  in  the  municipality,  and  to  cull  out 
from  those  proposed  for  the  office  all  the  ineligible, 
and  to  secure  the  fittest  remaining.  It  is  true  that 
they  are  at  liberty  to  remove  him  at  will,  but  this 
may  not  always  be  a  practical  power  and  may  not 
always  be  exercised  in  time  to  prevent  the  fruition 
of  his  wrongful  acts.  Theirs  is  the  option  either 
to  let  him  alone  so  long  as  he  conducts  the  affairs 
of  his  office  satisfactorily  to  the  people  and  to  the 
commission  or  they  must  completely  remove  him 
from  office.  They  do  not  have  the  privilege  of  re- 
taining him  in  office  and  directing  the  methods  that 
he  may  pursue  for  the  achievement  of  results.  Fur- 
ther than  this,  of  course,  the  city  manager  is  always 
subject  to  recall  directly  by  the  people.  This  affords 
the  commission  a  peculiar  advantage.  In  case  af- 
fairs are  not  conducted  properly,  and  it  is  appar- 
ently the  fault  of  execution,  and  not  the  fault  of 
legislation,  then  the  commission,  who  are  solely  re- 
sponsible for  the  inauguration  of  policies  and  plans, 
are  exonerated  from  blame,  and  the  people  can  vent 
their  wrath  upon  the  city  manager  alone  if  they  so 
desire. 

Pozvers. — Unique  are  the  powers  of  the  city  man- 
ager. In  him  are  concentrated  all  functions  of  ap- 
pointment, of  control  of  employees  and  of  advice  to 


84  THE   CITY   MANAGER 

the  commission.  In  the  Dayton  and  Springfield 
plan  the  power  is  so  extensive,  particularly  in  the 
former  city,  that  the  term  "controlled-executive"  is 
hardly  applicable  any  more. 

One  thing  is  evident.  His  methods  of  achieving 
results  are  uncontrolled.  The  end,  not  the  means, 
is  the  objective  in  these  modern  instruments  of  gov- 
ernment. The  powers  and  duties  of  the  chief  ex- 
ecutive of  the  modern  American  city  are,  therefore, 
quite  unprecedented. 

The  charter  of  Springfield  enumerates  succinctly 
his  powers  in  the  following  manner : 

"(a)  To  see  that  the  laws  and  ordinances  are 
enforced. 

"(b)  Except  as  herein  provided,  to  appoint  and 
remove  all  heads  of  departments,  and  all  subordi- 
nate officers  and  employees  of  the  city;  all  appoint- 
ments to  be  upon  merit  and  fitness  alone,  and  in  the 
classified  service  all  appointments  and  removals  to 
be  subject  to  the  civil  service  provisions  of  this 
charter. 

"(c)  To  exercise  control  over  all  departments  and 
divisions  created  herein  or  that  hereafter  may  be 
created  by  the  commission. 

"(d)  To  see  that  all  terms  and  conditions  im- 
posed in  favor  of  the  city  or  its  inhabitants  in  any 
public  utility  franchise  are  faithfully  kept  and  per- 


THE   CITY   MANAGER  85 

formed;  and  upon  knowledge  of  any  violation 
thereof  to  call  the  same  to  the  attention  of  the  city 
solicitor,  who  is  hereby  required  to  take  such  steps 
as  are  necessary  to  enforce  the  same. 

"(e)  To  attend  all  meetings  of  the  commission, 
with  the  right  to  take  part  in  the  discussions  but 
having  no  vote. 

"(f)  To  recommend  to  the  commission  for  adop- 
tion such  measures  as  he  may  deem  necessary  or 
expedient. 

"(g)  To  act  as  budget  commissioner  and  to  keep 
the  city  commission  fully  advised  as  to  the  financial 
condition  and  needs  of  the  city;  and 

"(h)  To  perform  such  other  duties  as  may  be 
prescribed  by  this  charter  or  be  required  of  him  by 
ordinance  or  resolution  of  the  commission." 

The  city  manager  in  this  city  is  also  empowered 
to  act  as  the  platting  commissioner.  This  is  of 
particular  import  in  these  days  when  it  is  very  ad- 
visable to  have  a  uniform  method  and  plan  of  ar- 
ranging the  city.  City  platting  has  become  a  science 
in  itself  and  should  be  administered  by  an  expert 
who  has  a  wide  knowledge  of  the  needs  of  the  city, 
its  urgent  demands  and  the  possibilities  for  the 
future. 

Dayton  empowers  her  city  manager  in  the  follow- 
ing manner : 


86  THE   CITY   MANAGER 

"(a)  To  see  that  the  laws  and  ordinances  are 
enforced. 

"(b)  To  appoint  and,  except  as  herein  provided, 
remove  all  directors  of  departments  and  all  subor- 
dinate officers  and  employees  in  the  departments  in 
both  the  classified  and  unclassified  service;  all  ap- 
pointments to  be  upon  merit  and  fitness  alone,  and 
in  the  classified  service  all  appointments  and  re- 
movals to  be  subject  to  the  civil  service  provisions 
of  this  charter; 

"(c)  To  exercise  control  over  all  departments 
and  divisions  created  herein  or  that  may  be  here- 
after created  by  the  Commission ; 

"(d)  To  attend  all  meetings  of  the  Commission 
with  the  right  to  take  part  in  the  discussion  but 
having  no  vote; 

"(e)  To  recommend  to  the  Commission  for  adop- 
tion such  measures  as  he  may  deem  necessary  or 
expedient ; 

"(f)  To  keep  the  Commission  fully  advised  as  to 
the  financial  condition  and  needs  of  the  city;  and 

"(g)  To  perform  such  other  duties  as  may  be 
prescribed  by  this  charter  or  be  required  of  him  by 
ordinance  or  resolution  of  the  Commission." 

As  exact  knowledge  of  conditions  in  the  depart- 
ments and  among  employees  is  one  of  the  require- 
ments or  one  of  the  basic  ideas  in  the  new  city  gov- 


THE   CITY   MANAGER  87 

crnment,  it  is  quite  in  keeping  to  direct  that  the 
city  manager  may  without  notice  cause  an  extensive 
investigation  into  the  affairs  of  any  of  the  depart- 
ments under  his  control  or  the  conduct  of  any  offi- 
cer or  employee.  This  power  of  the  manager  to 
investigate  is  coupled  with  the  power  to  compel  the 
attendance  of  witnesses  and  the  production  of  books 
and  to  punish  for  contempt  in  order  to  enforce  the 
carrying  out  of  his  orders  made  in  such  manner. 

In  Hickory,  North  Carolina,  the  charter  sets  forth 
the  powers  of  the  city  manager,  not  in  an  orderly 
or  systematic  fashion  as  in  the  well-drawn  charters 
of  the  larger  cities,  but  in  an  equally  effective  way. 
The  powers  it  enumerates  are  about  as  follows : 

(a)  He  shall  attend  all  meetings  of  the  council 
and  make  recommendations  thereto  and  furnish  in- 
formation to  it  as  may  seem  necessary  within  the 
wisdom  of  council  or  manager. 

(b)  He  shall  require  an  accurate  report  from 
those  beneath  him  in  various  departments  as  to  the 
performance  of  their  duties. 

(c)  He  shall  sign  all  contracts,  licenses  and  other 
documents  on  behalf  of  the  city. 

(d)  He  has  the  power  of  investigation. 

(e)  He  has  the  power  of  revocation  of  licenses 
pending  action  of  the  city  council. 

(f)  He  has  power  over  public  works  and  build- 


THE   CITY   MANAGER  89 

ings,  construction  of  public  improvements,  as  high- 
ways, bridges,  etc. ;  he  has  control  of  public  utilities, 
whether  publicly  or  privately  owned;  and  he  has 
charge  of  all  the  water  supply  and  sewerage  sys- 
tems. 

(g)  He  has  power  to  suspend,  fine  or  dismiss 
members  of  the  police,  fire,  waterworks,  sewer- 
age and  street  departments  in  the  interests  of  dis- 
cipline. 

(h)  He  shall  submit  a  list  to  the  city  council 
from  which  are  to  be  appointed  for  the  term  of  one 
year  the  officers  and  employees  of  the  police,  fire, 
street,  water  and  sewerage  departments. 

In  La  Grande,  Oregon,  the  provision  as  to  the 
power  of  the  city  manager  is  a  very  general  one 
and  consequently  a  very  excellent  one.  In  this  city 
the  general  manager,  so  called,  has  absolute  control 
and  supervision  over  every  office  and  the  employees 
therein,  except  the  commissioners  and  the  municipal 
judge,  and  has  the  power  of  appointment  of  all 
other  officers.  He  has  the  power  to  discharge  his 
appointees  with  or  without  cause.  He  is  to  see 
that  the  business  of  the  corporation  is  transacted 
"in  a  modern,  scientific  and  business-like  manner." 
He  is  to  keep  records  like  those  kept  by  a  private 
corporation.  He  is  accountable  to  the  commission 
for  results. 


9o  THE   CITY   MANAGER 

From  an  analysis  of  the  foregoing  respective 
charters  in  the  matter  of  powers  given  the  city  man- 
ager, the  following  are  apparently  the  general 
powers  usually  conferred  upon  that  official: 

(a)  He  is  charged  with  the  enforcement  of  laws 
and  ordinances. 

(b)  He  administers  the  affairs  of  the  departments 
and  is  responsible  for  the  results  obtained  there- 
from. 

(c)  He  appoints  and  dismisses  the  employees 
whose  work  will  produce  the  results  he  is  responsible 
for. 

(d)  He  advises  the  council  and  attends  the  meet- 
ings for  that  purpose,  supplementing  his  advice  with 
formal  written  reports,  but  he  has  no  vote. 

(e)  He  estimates  the  financial  needs  of  the  cor- 
poration and  acting  as  expert  budget  maker  he  is 
financial  adviser  of  the  commission. 

(f)  He  has  the  general  powers  of  investigation 
and  is  the  general  agent  of  the  commission. 

Control  of  Salaries. — In  the  discussion  of  the  de- 
partments, many  of  the  limitations  to  the  authority 
of  the  city  manager  have  been  already  considered, 
but  there  are  a  number  of  miscellaneous  powers 
untouched  upon.  In  city  government,  no  less  than 
in  war,  a  control  over  the  payroll  of  the  active 
participants,  as  the  officers,  is  a  potent  thing.    With 


THE   CITY   MANAGER  91 

the  exception  of  department  heads,  direct  employees 
of  the  commission,  police  and  fire  force,  and  board 
members  in  the  unclassified  service,  all  the  vast  num- 
ber of  remaining  employees  and  officers  have  their 
compensation  fixed  virtually  by  the  city  manager. 
This  is  true  of  one  charter  at  least,  that  of  Dayton. 
And  in  this  instrument  it  is  still  further  wisely 
provided  that  uniform  salaries  shall  be  paid  for  like 
services,  as  such  services  shall  be  graded  by  the  city 
manager  in  harmony  with  the  civil  service  rules. 
Upon  being  so  fixed,  a  report  is  made  to  the  city 
employment  officer  of  the  size  of  salary  for  the 
particular  office.  In  fixing  the  limit  of  these  sal- 
aries the  amount  of  the  bond  which  the  particular 
officer  may  be  called  upon  to  give  for  the  faithful 
and  honest  performance  of  his  duties  is  also  deter- 
mined by  the  city  manager. 

Financial  Control. — The  city  manager  should 
properly  be  in  intimate  relationship  with  the  curtail- 
ment of  expenditures.  He  should  be  in  daily  con- 
tact with  the  sources  of  income  and  outgo,  for 
he  is  the  expert  financial  adviser  of  the  commis- 
sion, often  a  member  of  the  sinking  fund  board, 
and  takes  an  active  part  in  preparing  the  budgets 
It  is  therefore  provided,  in  one  case  at  least,  that  no 
warrant  for  the  payment  of  a  claim  shall  be  issued 
by  the  city  accountant  until  such  warrant  is  counter- 


92  THE   CITY   MANAGER 

signed  by  the  city  manager  as  well  as  by  the  head 
of  the  department  incurring  the  expense.  Further- 
more, "each  order  of  purchase  or  sale,"  is  "to  be 
approved  and  countersigned  by  the  city  manager  or 
his  deputy"  before  the  city  purchasing  agent  can 
close  a  purchase  or  contract.  The  letting  of  con- 
tracts in  this  same  charter  is  checked  by  the  neces- 
sary approval  of  the  city  manager  and  commission 
before  the  award  can  be  made,  whenever  the  con- 
tract is  for  an  amount  over  $500.  This  same  char- 
ter provides  that  the  city  manager  shall  be  a  member 
of  the  board  of  revision  of  assessments;  this  is 
certainly  an  excellent  provision  for  it  gives  the  city 
manager  an  intimate  knowledge  of  the  income  of  the 
city  on  the  side  of  taxation. 

No  other  charter  provides  so  liberally  for  con- 
trol by  the  expert.  It  commends  itself  as  a  most 
sensible  provision,  for  it  gives  the  controlling  agent 
in  the  government  the  whip  hand  to  get  results. 
Under  the  old  system  remonstrance  or  removal — 
if  removal  were  ever  accomplished  when  the  culprit 
had  political  friends — was  the  sole  means  of  reliev- 
ing inefficiency.  The  city's  money  is  paid  for  re- 
sults, and  if  in  the  judgment  of  the  man  seeking 
them,  they  are  not  being  obtained,  there  should  be 
less  pay  or  no  pay.  It  is  characteristic  of  the  new 
order  that  employees  are  hired  to  produce,  and  not 


THE   CITY   MANAGER  93 

to  become  merely  of  more  or  less  decorative  value. 

Appointive  Poiucr. — It  will  also  be  noticed  that 
his  appointive  power  is  very  generous  in  all  the 
charters.  For  instance,  in  Hickory,  North  Caro- 
lina, he  furnishes  a  list  of  candidates  from  which 
are  selected  officers  and  employees,  in  the  police, 
fire,  street,  waterworks  and  sewerage  departments. 
This  provision  is  weaker  than  those  usually  made 
and  does  not  seem  to  be  in  keeping  with  the  spirit 
of  the  plan.  The  officials  so  appointed  are  only  to 
hold  office  for  the  meager  tenure  of  one  year,  and 
that  is  probably  not  long  enough  for  the  personnel 
to  take  hold  heartily  of  their  work  as  a  permanent 
thing  or  devote  their  best  energies  to  it.  It  also 
makes  difficult  the  securing  of  really  competent  men, 
for  a  competent  man  does  not  like  to  have  his  best 
efforts  cut  off  at  the  very  time  when  they  are  be- 
ginning to  bear  fruit.  If  the  manager  is  to  be  re- 
sponsible, he  should  be  entitled  to  a  chance  to  do 
things  right  as  well  as  a  chance  to  do  things  wrong 
which  would  bring  blame  upon  him.  Under  this 
plan  he  is  responsible,  without  having  the  power  to 
do  things  which  would  make  him  justly  liable,  for 
his  employees  are  in  large  measure  not  of  his  ap- 
pointing, and  those  who  are,  are  only  there  for  a 
short  period. 

In  Dayton,  the  city  manager  appoints  two  gen- 


94  THE    CITY   MANAGER 

eral  classes  of  men.  The  class  of  major  executives 
serve  as  heads  of  departments,  as  the  city  attorney, 
director  of  public  service,  director  of  public  wel- 
fare, director  of  public  safety,  and  director  of 
finance.  He  also  appoints  the  minor  executives  or 
those  subordinate  to  the  heads  of  departments,  as 
the  health  officer,  chief  of  police,  fire  chief,  city 
accountant,  city  treasurer  and  purchasing  agent.  He 
may  generally  select  for  his  employees  men  resi- 
dent anywhere.  He  is  expected  to  achieve  effi- 
ciency and  there  is  no  restriction  as  to  the  place  in 
which  he  may  seek  a  competent  man  to  fill  the 
position  he  has  in  mind. 

In  Springfield,  all  others  than  those  appointed  by 
the  commission  and  enumerated  in  a  prior  discus- 
sion of  that  body,  are  appointed  by  the  city  man- 
ager. Springfield  has  not  gone  as  tar  in  her  charter 
as  other  charters  have  in  the  freedom  of  appoint- 
ment which  is  usually  conferred  upon  the  chief  ex- 
ecutive. For  the  same  reason  that  there  is  an  error 
in  the  charter  of  Hickory,  North  Carolina,  there  is 
an  error  in  the  Springfield  charter  in  restricting  the 
manager  in  this  fashion,  for  his  appointive  and 
removal  power  is  a  very  potent  thing  to  enable 
him  to  secure  the  results  the  city  expects  him  to 
achieve. 

In  La  Grande,  Oregon,  the  city  manager  appoints 


THE   CITY   MANAGER  95 

the  city  recorder,  city  treasurer,  city  attorney,  chief 
of  police,  fire  chief,  city  engineer,  superintendent  of 
waterworks,  health  officer  and  street  superintendent. 
These  men  are  subject  to  recall  by  him,  with  or 
without  cause. 

In  Phoenix,  Arizona,  the  city  manager  appoints 
the  city  clerk,  city  treasurer,  city  assessor,  city  col- 
lector, city  attorney,  engineer,  chief  of  police,  fire 
chief  and  superintendent  of  streets. 

Location  of  Appointive  Power. — In  this  particu- 
lar the  prudence  of  the  framers  of  the  Dayton 
charter  is  exhibited.  This  scheme  of  division  of 
powers,  set  forth  in  that  charter,  justly  entitles  it 
to  the  claim  of  preeminence  over  all  other  contem- 
poraneous charters.  What  more  in  keeping  with  the 
innate  justice  and  businesslike  spirit  which  pervades 
the  new  order  than  to  hold  the  city  manager  respon- 
sible for  the  complete  execution  of  the  trust  which 
is  devolved  upon  him  as  a  public  servant?  We 
concentrate  the  power  in  him  and  we  look  to  him 
to  justify  our  confidence.  Yet  this  very  spirit  of 
righteous  justification  would  be  a  mockery  of  itself 
if  we  did  not  put  it  in  the  power  of  the  man  to 
whom  we  apply  such  an  acid  test  to  discharge  ably 
the  tasks  he  assumes.  The  means  of  discharging 
the  trust  must  inevitably  lie  in  the  personnel  of  the 
departments  over  which  he  exercises  so  radical  a 


96  THE   CITY   MANAGER 

control.  The  Dayton  charter,  therefore,  provides 
that  the  city  manager  shall  have  a  very  wide  and 
generous  scope  to  his  appointments.  He  has  abso- 
lute control  over  his  departments,  and  absolute 
power  of  appointment  and  removal,  with  or  with- 
out cause,  provided  only  that  he  does  not  act  in  con- 
flict with  the  civil  service  regulations.  It  is  simply 
a  question  of  the  commercial  world  of  how  to  pro- 
duce the  best  results,  and  an  application  of  the 
experience  of  private  enterprises  that  important 
executives  must  not  be  hampered  in  their  means  of 
effecting  tangible  achievements.  It  is  evident  that 
this  must  be  inevitably  the  order  of  affairs  if  we 
expect  the  city  manager  to  write  efficiency  with  a 
majuscule. 

Conclusion. — In  this  type  of  officer,  the  person- 
nel of  the  new  profession  is  exemplified.  It  is  a 
far  cry  from  the  day  of  the  inefficient  amateur  to 
the  precisive  professional  administrator :  the  annals 
of  civic  progress  embrace  many  a  weary  recital  of 
sloth  and  indecision,  of  bad  judgment  and  wilful 
carelessness.  This  must  be  no  more.  Sincere  ef- 
forts are  now  under  way  to  keep  a  clean  record  in 
the  future.  Above  all  and  beyond  all,  the  idea  that 
ability  to  direct  a  city's  destiny  is  a  God-given  gift 
common  to  the  politically  chosen  is  meeting  its 
Nemesis ;  we  are  living  now  in  a  more  sophisticated 


THE   CITY   MANAGER  97 

time  when  the  sugar-plums  of  political  quackery  no 
longer  satisfy  the  jaded  popular  taste.  This  nation- 
wide desire  for  knowledge  and  publicity  and  sim- 
plicity is  garnering  its  significant  fruits  of  effi- 
ciency, economy,  and  centralized  administrative  au- 
thority. We  are  indeed  on  the  threshold  of  the 
dawning  of  a  new  day  for  a  new  profession.  May 
its  history  record  a  generous  fulfillment  of  its  for- 
tuitous beginnings. 


CHAPTER   VII 

THE  DEPARTMENTS 

In  the  new  as  in  the  old,  the  central  powers  of  the 
state  are  divided  into  three  departments, — legislative, 
executive  and  judicial, — which,  in  the  same  qualified 
sense,  are  separate  and  distinct  from  each  other. 

Hannis  Taylor 

A  grave  difficulty  has  arisen  as  to  the  connection 
of  the  departments  with  the  commissions.  More  or 
less  trouble  has  been  experienced  in  methods  of 
supervising  the  several  divisions  of  the  municipal 
organization.  The  conventional  species  of  commis- 
sion government  provided  that  the  positions  of  the 
heads  of  departments  were  to  be  filled  by  the  com- 
missioners themselves :  the  commissioners  were  to  be 
directors  of  departments  or  be  responsible,  at  least, 
for  them. 

Des  Moines  Plan. — Des  Moines,  Iowa,  provided 
that  the  commissioners  were  to  be  elected  to  cer- 
tain positions  which  were  specified  prior  to  the 
election,  and  candidates  were  to  compete  for  defined 
positions.  The  electorate  had  the  privilege  of  select- 
ing, therefore,  particular  men  for  a  specified  job. 

98 


THE   DEPARTMENTS  99 

In  this  is  found  a  fundamental  error.  It  is  falla- 
cious for  this  reason,  that  it  puts  upon  the  people 
the  task  of  selecting  a  man  in  a  political  way  for  a 
position  which  does  not  involve  any  political  quali- 
fications and  in  choosing  a  man  in  whose  make-up 
the  less  politics  there  is,  the  more  efficacious  will  be 
his  work  in  behalf  of  the  city  he  is  to  serve.  The 
problem  is  not  only  the  selection  of  a  commissioner, 
in  this  form  of  commission  government,  but  it  is 
also  that  of  selecting  an  executive;  this  dual  re- 
quirement is  one  fraught  with  hazard  and  confu- 
sion, and  with  inevitable  difficulty  in  the  exercise  of 
a  conscientious  and  successful  selection  by  the  voter 
of  the  right  man  for  the  right  place.  These  two 
qualifications  of  legislator  and  executive  required  in 
a  candidate  for  commissioner  will,  without  doubt, 
be  irreconcilably  confused  and  neither  the  general 
results  of  efficient  management  nor  the  personnel  of 
the  commission  will  be  what  could  have  been  had 
if  the  respective  positions  of  the  commissioner,  as 
an  adviser,  and  the  head  of  the  department,  as  an 
executive,  were  kept  separate. 

Galveston  Plan. — In  the  Galveston  plan,  while 
each  commissioner  does  not  actually  take  part  as  a 
director  of  a  department,  discharging  the  details 
that  that  position  entails,  yet  he  is  responsible  for 
that  department,  and  there  lies  upon  him  the  duty 


ioo  THE   CITY   MANAGER 

to  appoint  a  competent  head  who  will  perform  the 
services  required.  To  each  commissioner  is  allotted 
the  tasks  appurtenant  to  a  division  of  the  govern- 
ment, and  to  each  commissioner  attaches  the  diffi- 
culties and  embarrassments  of  that  department. 
The  commissioner  is  virtually  an  executive  as  well 
as  a  legislator.  Further,  it  is  to  be  determined  by 
vote,  among  the  commissioners  who  are  elected 
to  office  which  ones  among  them  will  administer 
particular  departments.  This  procedure  is  again 
liable  to  wise  objections.  First,  the  responsibility 
for  the  execution  of  the  duties  of  the  departments 
is  split  into  as  many  parts  as  there  are  commission- 
ers. There  is  no  one  legislative  body  and  no  one 
entire  and  consolidated  executive  branch  which  the 
people  can  directly  look  to  and  require  to  produce 
the  requisite  results.  Second,  it  is  or  may  be,  a 
matter  of  injustice  to  some  of  the  commissioners, 
for  perchance  a  number  of  them  will  fail  in  their 
duties  while  one  or  two  will  do  well ;  those  who  do 
well  will  be  hampered  in  their  policies  on  the  one 
hand  and  hampered  in  their  execution  of  their  du- 
ties on  the  other  hand,  and  it  will  be  difficult  to 
show  in  what  division  of  the  work  there  was  error, 
whether  it  was  committed  through  the  vote  of  the 
majority  of  the  commissioners  on  the  legislative 
side  or  the  mismanagement  of  some  particular  com- 


THE   DEPARTMENTS  101 

missioner  on  the  executive  side.  If  these  depart- 
ments, then,  are  administered  separately  from  the 
commission  the  people  can  see  whether  mistakes  are 
due  to  legislation  or  the  fault  of  execution,  and  act 
and  recall  accordingly. 

City  Manager  Plan. — The  city  manager  plan  has 
a  provision  of  sterling  wisdom  to  meet  this  situa- 
tion. It  obviates  the  theoretical  and  the  practical 
difficulty  of  combining  two  radically  different  phases 
of  any  administration  work.  The  commissioners 
have  nothing  to  do  with  the  execution  of  the  legis- 
lation ;  the  city  manager  has  everything  to  do  with 
the  execution  of  the  government  business.  There- 
fore, it  is  justly  and  very  wisely  provided  that  the 
city  manager  shall  appoint  the  heads  of  the  depart- 
ments. The  departments  are  thus  directed  by  means 
independent  of  the  commission.  There  is  one  re- 
sponsible executive  head ;  and  that  head,  in  order  to 
justly  hold  him  accountable  has,  as  stated  hereto- 
fore, complete  power  of  appointment  of  those 
subordinate  to  him,  whether  they  be  of  major  or 
minor  importance.  It  is  true  that  the  field  of  selec- 
tion is  sensibly  curtailed  at  times  to  the  domain 
of  a  prepared  civil  service  list,  but  his  freedom 
of  choice  is  unrestricted  so  far  as  the  material 
extends. 

The  Departments. — To  return  to  the  discussion 


102  THE   CITY   MANAGER 

of  the  model  charter  of  Dayton,  with  its  most  ad- 
vanced features  so  radically  in  evidence  in  the  ar- 
rangement of  the  departments,  it  was  provided  that 
a  director  shall  head  each  department.  These  de- 
partments are  five  in  number,  entitled  law,  welfare, 
service,  safety  and  finance. 

Division  Scheme. — The  very  names  of  the  de- 
partments are  tellingly  significant  of  the  new  order 
of  municipal  life.  We  are  living  in  a  generous 
age  wherein  the  social  mind  is  turning  itself  to  gen- 
eral organization  rather  than  to  minute  subdivisions 
of  the  government.  It  is  a  division  along  the  line 
of  principles  rather  than  a  division  along  the  line 
of  miscellaneous  facts.  We  used  to  have  in  a  great 
many  cities  such  divisions  as  the  waterworks  de- 
partment, the  street  department  or  the  treasurer's 
office.  The  very  multitude  of  these  disjointed  and 
scarcely  related  divisions  of  the  government  made 
impossible  the  efficiency  that  should  have  been.  We 
are  now  vigorously  assuming  a  new  duty.  Munici- 
pal government  is  divided  only  along  those  basic 
lines  that  its  functions  naturally  resolve  themselves 
into. 

Department  of  Law 

First  and  foremost,  then,  of  these  departments, 
we  have  the  most   fundamental  of  them,  that  of 


THE   DEPARTMENTS  103 

law.  Over  this  department  is  placed  an  able,  trained 
member  of  the  bar,  equipped  with  professional 
knowledge  and  balanced  by  that  instructive  experi- 
ence which  comes  to  the  competent  advocate.  The 
new  department  is  not  merely  the  place  for  an  office- 
holder, nor  the  opportunity  for  a  selfishly  ambitious 
young  politician ;  it  holds  forth  generous  opportuni- 
ties for  a  keen-minded,  logical  man  of  sound  busi- 
ness and  technical  training  to  apply  the. ideals  of 
his  profession  to  the  very  acute  needs  of  his  com- 
munity. The  new  office  directs  its  occupant  to  ad- 
vise the  city  officials  and  prevent  disputes  and  com- 
plications ;  it  requires  him  to  protect  the  city  in  the 
courts  and  prosecute  its  rights  in  those  forums;  it 
obligates  him  to  enforce  its  ordinances  and  to  create 
a  profound  respect  for  ordinances  and  rulings  pro- 
mulgated by  the  officials.  The  new  department  is 
generous  in  scope;  it  is  a  tempting  opportunity  for 
the  man  of  constructive  mind  to  make  a  record  of 
service  to  his  community. 

The  commission  or  the  city  manager,  or  the  di- 
rector of  any  department,  or  a  board  or  an  officer 
not  included  within  a  department,  may  require  the 
city  attorney's  opinion.  The  latter  officer  is  em- 
powered to  take  steps  to  prevent  the  abuse  of  cor- 
porate powers,  the  misapplication  of  funds,  or  the 
performance  of  contracts  in  contravention  of  law  or 


104  THE   CITY   MANAGER 

those  procured  by  fraud.  He  can  apply  to  the 
courts  for  an  order  to  compel  performance  of  du- 
ties by  negligent  or  wilfully  dilatory  officials.  The 
city  attorney  is  empowered  with  liberal  authority 
to  protect  civic  rights. 

A  Suggestion. — There  is  one  rift  in  this  perfect 
list  of  duties.  Experience  with  legal  departments 
of  many  cities  has  pointed  out  one  thing,  that  it 
takes  a  different  type  of  legal  mind  to  discharge 
the  duties  of  city  solicitor  from  that  required  for 
the  discharge  of  the  duties  of  city  attorney.  The 
solicitor  is  a  lawyer  concerned  chiefly  with  the  dis- 
putes of  a  civil  character;  the  city  attorney  is  a 
prosecuting  officer  concerned  largely  with  the  crim- 
inal branch  or  the  penal  side  of  the  legal  depart- 
ment. It  is  for  these  reasons  that  the  two  offices 
should  not  be  filled  by  the  same  person.  Experience 
has  taught  otherwise.  This  can  be  remedied  by 
the  appointment  of  subordinates  peculiarly  fitted  to 
the  several  divisions  of  the  work;  but  smaller  cities 
in  which  such  division  would  not  be  justifiable 
should  enact  this  provision  only  after  keen  con- 
sideration. 

Department  of  Public  Service 

Public  service  is  an  apt  title  for  the  second  de- 
partment.   It  is  an  arduous  and  thankless  and  tedi- 


THE   DEPARTMENTS  105 

ous  task  to  arouse  civic  pride  and  conscientious 
ambition.    Once  done,  the  results  are  marvelous. 

To  impress  upon  the  public  that  in  just  the  pro- 
portion that  the  dust  of  the  streets  and  the  open 
garbage  cans  and  sluggish  canals  and  the  disposi- 
tion of  city  refuse  are  taken  care  of,  in  that  pro- 
portion is  the  city  health  improved,  is  the  death 
rate  decreased,  is  the  infant  mortality  percentage 
reduced — this  is,  indeed,  an  undertaking  of  some- 
times despairing  magnitude. 

Scope  of  Duties. — As  to  the  scope  and  duty  of 
the  new  department  of  public  service,  primarily 
it  is  always  "subject  to  the  supervision  and  control 
of  the  city  manager  in  all  matters."  The  director 
of  public  service  manages  the  construction  and 
maintenance  of  streets,  bridges  and  viaducts,  and 
the  public  highways  generally ;  of  the  sewerage  sys- 
tems and  disposal  plants,  canals,  and  water  courses ; 
of  the  public  buildings;  of  the  boulevards  and 
squares  and  city  grounds,  except  those  devoted  to 
parks  and  playgrounds;  of  the  market-houses  and 
farms  and  public  utilities  of  the  city.  The  head  of 
this  department  is  empowered  to  enforce  all  obliga- 
tions of  privately  owned  or  operated  public  utilities 
enforcible  by  the  city.  And  upon  him  devolves  the 
duty  of  making  and  preserving  surveys,  plans  and 
drawings,  and  estimates  for  public  work.    He  also 


106  THE   CITY   MANAGER 

sees  that  the  streets  which  he  maintains  and  re- 
pairs are  cleaned,  lighted  and  sprinkled,  and  that  the 
waste  is  collected  and  disposed  of.  He  preserves 
whatever  implements  and  documents  are  incidental 
to  the  prosecution  of  work  in  his  department. 

Department  of  Public  Welfare 

Akin  to  the  department  of  public  service  is  the 
department  of  public  welfare.  The  citizen  of  twen- 
ty-five or  fifty  years  ago  in  what  was  then  a  modern 
city  would  undoubtedly  be  horrified  at  the  social 
program  which  the  modern  municipality  undertakes. 
It  is  a  far  cry  from  that  day  when  Glasgow  took 
the  sensible  and  what  was  considered  a  most  ad- 
vanced stand  that  the  hallways  and  stairways  of 
tenements  were  in  the  nature  of  public  thorough- 
fares and  should  be  lighted  and  regulated  accord- 
ingly, to  this  present  day  when  the  scope  of 
municipal  control  has  been  so  enlarged — in  the  light 
of  what  modern  cities  are  attempting  to  do  under 
the  name  of  public  welfare,  the  Dayton  charter. 
In  fact  none  of  the  recent  charters  under  the  city 
manager  plan  can  be  accused  of  being  over-radical : 
they  embody  many  progressive  features,  but  they 
are  well  tried.  By  comparison  the  city  manager 
charter  provisions  appear  very  wise  and  conserva- 


THE   DEPARTMENTS  107 

tive  and  sane.  For  an  instance  of  advanced  ideas, 
Kansas  City,  Missouri,  operates  a  municipal  farm 
for  city  prisoners,  a  women's  reformatory  where 
productive  work  is  turned  out,  a  parole  department, 
a  recreation  department  for  the  inspection  of  public 
amusements,  a  legal  aid  bureau,  a  department  for 
the  homeless  and  the  unemployed,  a  social  service 
department  for  the  consolidation  and  administration 
of  all  charities,  a  research  bureau  for  the  scientific 
investigation  of  social  problems,  a  factory  inspec- 
tion department  and  bureau  of  labor  statistics,  a 
welfare  loan  agency,  and  a  child  welfare  depart- 
ment. 

Pozvcrs. — The  definition  of  public  welfare  is 
therefore  a  term  of  considerable  range.  The  new 
department  under  that  name  in  Dayton  has  the  fol- 
lowing proposals  in  view;  but  whether  they  will  be 
interpreted  to  cover  any  of  the  above  is  a  matter 
that  time  only  will  clearly  answer.  All  correctional 
and  reformatory  institutions  and  agencies  belonging 
to  the  city  are  to  be  administered  by  this  depart- 
ment; parks,  playgrounds  and  recreational  centers 
of  the  city  are  to  be  controlled  by  this  division. 
The  director  has  charge  of  the  inspection  and  super- 
vision of  public  entertainments ;  of  the  enforcement 
of  laws  and  ordinances  relative  to  the  public  health 
in  both  the  prevention,  isolation  and  cure  of  dis- 


108  THE   CITY   MANAGER 

eases.  Co-related  with  this  is  the  duty  of  inspection 
of  the  production  and  transportation,  storage  and 
sale  of  food.  In  order  that  the  department  may  be 
conducted  on  a  system  based  on  scientific  knowledge, 
an  accurate  analysis  of  vital  statistics  is  to  be  kept, 
and  a  research  into  the  causes  of  poverty,  delin- 
quency, crime  and  disease  will  be  conducted.  Act- 
ing upon  the  age-old  belief  that  prevention  will  out- 
weigh in  merit  even  the  cure,  there  will  be  insti- 
tuted a  program  of  public  education  on  matters  that 
affect  the  public  welfare,  whether  it  be  a  matter  of 
crime  or  health  or  delinquency.  The  usual  depart- 
ment of  health  is  a  subdivision  of  this  larger  depart- 
ment of  welfare. 

Department  of  Public  Safety 

Under  the  director  of  public  safety  are  the  divi- 
sions of  police  and  fire.  In  addition  to  the  general 
duties  of  supervision  over  these  two  divisions,  the 
director  is  the  chief  administrative  authority  in  all 
matters  affecting  the  regulation  of  the  erection  of 
buildings,  their  inspection,  maintenance  and  occu- 
pancy, as  the  commission  or  general  code  of  Ohio 
may  prescribe.  Within  the  scope  of  this  depart- 
ment there  is  also  placed  the  enforcement  of  all 
laws  and  ordinances  relating  to  the  subject  of  traf- 
fic, weights  and  measures. 


THE   DEPARTMENTS  109 

The  latter  provision  evidences  the  principal  fault 
in  the  Dayton  charter,  a  fault  due  to  the  pressure 
under  which  the  commissioners  worked  in  drafting 
the  instrument.  As  a  logical  consequence  the  char- 
ter in  places  is  heterogeneous  in  character.  It  would 
seem  that  more  mature  and  careful  thought  would 
suggest  that  the  subject  of  weights  and  measures 
should  be  placed  under  the  control  of  the  depart- 
ment of  public  welfare.  This  division  of  municipal 
government  has  a  kindred  subject,  as  for  instance, 
the  control  of  markets  and  foodstuffs,  and  the  char- 
ter specifically  provides  that  this  department  shall 
"supervise  .  .  .  sale  of  foodstuffs."  It  would 
therefore  be  highly  commendable  to  follow  the  orig- 
inal and  basic  idea  upon  which  the  charter  was 
founded  and  group  similar  duties,  requiring  meth- 
ods that  are  akin  and  appliances  that  are  of  the 
same  character,  in  order  that  there  should  be  a  mini- 
mum of  conflicting  effort  in  the  departments  and  a 
minimum  of  duplication  of  apparatus.  This  con- 
glomerate assignment  of  work  among  the  different 
departments  has  been  the  cause  in  the  past,  in  other 
municipal  organizations,  of  much  maladministra- 
tion. 

Divisions  of  Fire  and  Police 

Rules  and  regulations  are  made  by  the  chief  of 
police  for  the  control  of  his  department.    The  city 


no  THE   CITY   MANAGER 

manager  determines  the  number  of  men  in  the  di- 
vision. The  director  of  public  safety  is  granted  the 
power  to  appoint  additional  men  for  temporary 
service,  as  in  the  case  of  riot,  who  need  not  be  in 
the  classified  service.  A  similar  provision  is  em- 
bodied in  this  governing  instrument  to  take  care  of 
the  fire  department.  The  suspension  of  the  chief 
by  the  manager  is  reviewed  and  finally  passed  upon 
by  the  commission  after  a  full  and  complete  hear- 
ing. The  chiefs  of  fire  and  police  are  subject  to 
removal  exclusively  by  the  city  manager  for  the 
enumerated  causes  of  incompetency,  insubordination 
and  immorality. 

Department  of  Finance 

The  organization  of  the  department  of  finance 
under  the  Dayton  charter  is  the  product  of  genuine 
constructive  thought.  A  very  generous  share  of 
credit  is  due  the  framers  for  the  excellent  system 
they  have  devised.  Because  of  its  critical  character 
it  is  set  forth  here  with  some  elaboration.  The 
system  is  worthy  of  emulation. 

Simplicity:  Uniformity. — The  initial  step  in  the 
organization  of  such  a  department  is  the  enactment 
of  an  ordinance  by  the  commission  requiring  a  speci- 
fied type  of  ledgers,  uniform  in  character;  unit  cost 


THE   DEPARTMENTS  ni 

records ;  operation  reports ;  and  an  entire  unified  sys- 
tem of  accounting  procedure.  Such  an  ordinance 
is  the  criterion  of  the  effectiveness  of  the  new  gov- 
ernment. The  administrators  of  the  city  manager 
plan  do  not  propose  to  follow  the  customary  idea 
of  running  a  city  on  the  basis  of  the  cash  received 
and  disbursements  made,  but  rather  to  place  the 
system  on  the  basis  of  the  liability  the  city  will 
incur.  The  new  government  is  launched  with  a 
determination  to  stop  the  waste  and  have  the  records 
of  each  transaction  kept  up-to-date  and  scientifically 
accurate. 

Powers  of  Director. — The  general  duties  of  the 
director  of  finance  are  five  in  number.  First,  he  is 
to  keep  and  supervise  all  accounts;  second,  he  has 
the  custody  of  all  the  public  money  of  the  city; 
third,  the  purchase,  storage  and  distribution  of 
supplies  needed  by  the  various  departments  are  un- 
der his  direction ;  fourth,  the  making  and  collection 
of  special  assessments  are  left  to  his  judgment;  and 
fifth,  the  issuance  of  licenses  and  the  collection  of 
fees  are  also  among  his  duties. 

City  Accountant. — The  supervision  of  accounts  is 
under  the  control  of  an  officer  styled  the  city  ac- 
countant, a  member  of  the  force  responsible  to 
the  director  of  finance.  The  accountant  supervises 
the  financial  transactions  and  records  of  all  depart- 


ii2  THE   CITY   MANAGER 

ments  and  of  all  the  officers  of  the  municipality. 
Daily  departmental  reports  of  money  received  and 
disbursements  made  come  into  his  office;  and  in 
standard  form  all  current  financial  and  operating 
statements  are  prepared.  These  statements  set  forth 
succinctly  the  minute  details  of  each  transaction  and 
the  cost  thereof.  It  is  a  part  of  the  spirit  of  the 
modern  municipality  to  run  it  like  a  business  and 
to  know  where  the  public  corporation  stands  finan- 
cially at  any  moment,  rather  than  follow  the  ancient 
method  of  haphazard  expenditure  by  each  depart- 
ment irrespective  of  the  action  of  any  other  depart- 
ment, irrespective  of  the  amount  of  money  that  was 
actually  in  the  treasury,  or  probably  would  be,  and 
irrespective  of  economy  or  any  system  of  account- 
ing. Uniformity  of  accounting  was  generally  an 
unknown  art  in  former  days  in  the  management  of  a 
public  corporation. 

Accounting  Procedure. — A  whole  system  of  ac- 
counting should  be  devised  to  afford  the  city  a  his- 
tory in  detail  of  every  piece  of  business  involving 
the  acquisition,  custodianship  and  disposition  of 
values,  including  the  items  of  cash  receipts  and  dis- 
bursements. The  same  system,  as  suggested  above, 
for  a  careful,  analytical  and  scientifically  accurate 
statement,  is  provided  in  the  section  on  accounting 
procedure  in  the  Dayton  charter.     The  basic  idea 


ii4  THE    CITY   MANAGER 

contained  in  this  short  paragraph  is  of  peculiar  im- 
portance to  everyone  interested  in  the  formation  of  a 
charter,  for  such  a  system  as  proposed  goes  to  the 
very  heart  of  the  matter  and  is  the  open  door  to 
the  final  successful  management  of  the  business  of 
a  public  corporation  with  its  millions  of  dollars  of 
assets.  It  should  not  seem  such  a  strange  and  re- 
markable phenomenon  that  accounting  procedure 
should  have  an  intimate  relation  with  the  success 
of  a  city,  but  the  old  governments  made  it  con- 
spicuous by  its  absence.  This  city  accountant  has 
the  still  further  duty  of  the  preparation  and  certi- 
fication of  all  the  special  assessments  for  public 
improvements,  the  notification  of  property  owners, 
and  the  collection  of  such  assessments. 

Five  fundamental  objects  should  be  accomplished 
in  the  formulation  of  a  new  budget : 

1.  Appropriations  should  be  based  upon  detailed 
estimates. 

2.  The  public  hearings  upon  the  estimates  should 
be  granted. 

3.  Appropriations  should  be  kept  within  the  esti- 
mated income. 

4.  The  budget  should  be  prepared  scientifically, 
but  the  proposal  should  be  very  plainly  stated  so 
that  it  can  be  easily  understood  by  the  average 
citizen. 


THE   DEPARTMENTS  115 

5.  Public  hearings  on  the  tentative  budget  in  its 
final  form  should  be  required. 

The  salutary  effect  of  such  requirements  is  self- 
apparent. 

The  object  of  the  accounting  procedure  in  Dayton 
as  expressed  by  the  new  charter  is  "to  record  in 
detail  all  transactions  affecting  the  acquisition,  cus- 
todianship, and  disposition  of  values,  including  cash 
receipts  and  disbursements;  and  the  recorded  facts 
shall  be  presented  periodically  to  officials  and  to  the 
public  in  such  summaries  and  analytical  schedules 
in  detailed  support  thereof." 

City  Treasurer. — The  custody  of  public  funds  is 
left  to  an  official  styled  the  city  treasurer.  All 
moneys  collected  are  paid  to  him  and  all  moneys 
disbursed  must  pass  through  his  hands  upon  proper 
warrant  issued  by  the  accountant  under  the  super- 
vision of  the  director  of  finance.  The  payment  of 
claims  by  this  warrant  is  only  achieved  by  evidenc- 
ing the  debt  through  a  voucher  approved  by  the 
head  of  the  department  for  which  the  indebtedness 
is  incurred,  and  countersigned  by  the  manager ;  and 
then  the  city  accountant  issues  the  warrant  which  is 
to  be  honored  by  the  city  treasurer.  This  is  an  ad- 
mirable system  of  checks  at  a  point  where  the  doc- 
trine of  checks  and  balances  is  really  needed.  Be- 
fore the  head  of  a  department  issues  a  voucher  he  is 


n6  THE    CITY    MANAGER 

presumed  to  have  inspected  the  material  or  work  in 
payment  of  which  the  voucher  is  given. 

Purchasing  Agent. — The  best  evidence  of  prog- 
ress is  the  newly  created  office  of  a  general  purchas- 
ing agent.  In  private  corporate  affairs,  the  purchas- 
ing agent  is  one  of  the  most  valuable  adjuncts  to 
commercial  success  that  the  company  may  employ. 
His  position  is  fundamental,  for  upon  his  skill  and 
sagacity  in  trade  and  his  ability  to  secure  bottom 
prices  is  based  the  first  calculation  of  what  the  ulti- 
mate price  of  the  commodity  will  be. 

Yet  what  private  business  found  its  chief  est  ne- 
cessity, public  business  long  maintained  it  could  do 
without.  The  modern  city  no  longer  rinds  this  so. 
The  exigencies  of  present  commercial  methods  made 
indispensable  a  man  who  could  "purchase  all  sup- 
plies for  the  city,  sell  all  real  and  personal  property 
of  the  city  not  needed  or  unsuitable  for  public  use 
or  that  may  have  been  condemned  as  useless  by  the 
director  of  a  department.  He  shall  have  charge  of 
such  storerooms  and  storehouses  of  the  city  as  may 
be  provided  by  ordinance,  in  which  shall  be  stored 
all  supplies  and  materials  purchased  by  the  city  and 
not  delivered  directly  to  the  various  departments, 
and  he  shall  inspect  all  supplies  delivered  to  deter- 
mine quality  and  quantity  and  conformance  with 
specifications,  and  no  voucher  shall  be  honored  un- 


THE    DEPARTMENTS  117 

less  the  accompanying  invoice  shall  be  indorsed  as 
approved  by  the  city  purchasing  agent." 

In  one  charter  this  official  requires  from  the  di- 
rector of  each  department,  at  such  times  as  con- 
tracts for  supplies  are  to  be  let,  a  requisition  for  the 
quantity  and  kind  of  supplies  to  be  paid  for  from 
the  appropriation  of  the  department.  Upon  learn- 
ing that  the  funds  are  available,  the  agent  will  pur- 
chase in  this  manner,  unless,  of  course,  there  pre- 
sents itself  an  opportunity  to  buy  goods  for  cash 
at  a  great  advantage;  thereupon  the  purchasing 
agent  is  at  liberty  to  avail  himself  of  this  commer- 
cial opportunity  and  can  buy  for  cash  to  the  credit 
of  the  store's  account.  These  supplies  so  purchased 
will  be  furnished  ultimately  to  the  department  need- 
ing them;  when  the  need  becomes  apparent,  such 
department  will  requisition  what  it  desires  and  ac- 
company the  requisition  with  a  warrant  made  pay- 
able to  the  credit  of  the  store's  account. 

No  supplies  are  to  be  furnished  any  department 
unless  there  is  money  in  the  treasury  to  that  de- 
partment's account  ready  to  pay  for  them.  There 
must  be  to  the  credit  of  the  department  requisition- 
ing them  an  available  appropriation  balance  in  ex- 
cess of  all  unpaid  obligations,  sufficient  to  pay  for 
such  supplies. 

Further  than  this,  before  purchase  or  sale,  the 


n8  THE   CITY   MANAGER 

city  purchasing  agent  must  give  opportunity  for 
competition  among  those  able  to  furnish  the  sup- 
plies, and  receive  proposals  based  upon  precise  spec- 
ifications under  such  rules  and  regulations  as  the 
commission  establishes.  As  a  further  very  valuable 
check,  the  city  manager  must  approve  and  counter- 
sign each  order  of  purchase  or  sale.  Of  course,  in 
case  of  emergencies,  a  purchase  can  be  made  with- 
out competition  if  there  is  sufficient  appropriation 
already  at  hand  and  a  copy  of  the  order  issued  is 
filed  with  the  city  purchasing  agent  and  attached 
to  the  voucher. 

In  Staunton,  the  city  manager  is  the  purchasing 
agent,  as  he  is  designed  to  be  in  Springfield.  Actu- 
ally, however,  Mr.  Ashburner's  private  secretary  is 
now  discharging  the  duties  of  that  position.  In  the 
latter  city,  the  manager's  enumerated  duties  are  gen- 
erally the  same  as  in  Dayton,  the  plan  of  which  has 
just  been  given  in  substance. 

The  need  of  a  purchasing  agent  is  demonstrated 
by  the  conditions  prior  and  subsequent  to  the  crea- 
tion of  his  office.  Prior  to  his  advent,  it  was  cus- 
tomary for  the  head  of  a  department  to  make  out 
an  order,  the  auditor  would  sign  it,  but  would  not 
debit  the  books;  the  departmental  head  bought  the 
supplies;  yet  there  was  no  systematic  inspection, 
there  was  no  system,  no  anticipation  of  future  con- 


THE   DEPARTMENTS  119 

ditions  or  prices,  no  advantage  derived  from  whole- 
sale prices;  all  of  which  might  easily  have  been 
done  if  there  had  been  the  needed  concentration  of 
power  and  adequate  knowledge  obtained  of  the 
market  in  which  the  purchase  was  made.  As  a  con- 
sequence, retail  rates  were  frequently  paid,  when 
wholesale  could  have  been  secured;  there  was  no 
comprehensive  information  as  to  outstanding  bills; 
appropriations  exceeded  income,  because  there  was 
little  relation  known  between  what  was  needed, 
what  was  in  the  treasury,  and  what  could  be  af- 
forded. Dayton  alone  faced  the  average  deficit  of 
$60,000  per  year.  What  a  stinging  indictment  of 
inefficiency ! 

Look  at  the  present  plan !  The  first  requirement 
is  that  a  requisition  must  be  first  made  upon  a  fully 
informed  official,  the  purchasing  agent;  then  there 
will  be  a  debiting  of  the  proper  account  by  the 
auditor;  the  money  must  be  to  the  credit  of  the 
department  making  the  requisition;  the  goods  are 
purchased  at  wholesale  whenever  possible  and  al- 
ways properly  inspected;  the  whole  transaction  is 
finally  checked  by  the  necessity  of  the  voucher  being 
countersigned  by  the  city  manager. 

Instances  under  the  old  plan  of  extravagance  and 
waste  are  startling.  The  city  of  Dayton  paid  $.75 
per  quart  for  ink,  while  the  school  board  paid  $.41 


120  THE   CITY   MANAGER 

at  the  same  time  with  no  reason  for  difference  in 
price.  It  has  been  demonstrated  that  a  saving  of 
34  to  45  per  cent,  can  be  effected  by  the  introduc- 
tion of  the  modern  methods.  In  Cincinnati  alone 
a  purchasing  agent  in  one  year  saved  the  city  $ioo,- 
ooo.  It  is  expected  the  sum  of  $167,000  will  pass 
through  the  hands  of  the  Dayton  purchasing  agent, 
upon  which  he  can  exercise  his  saving  abilities. 
Here  is  an  opportunity  for  an  efficiency  record  to  be 
made  by  a  competent  man. 

Certification  of  Funds. — There  is  a  sound  busi- 
ness maxim  to  the  effect  that  a  debt  should  not 
be  contracted  until  the  money  is  in  sight  to  pay  for 
it.  Dayton  proposes  to  better  the  maxim.  It  has 
provided  that  the  money  must  be  in  the  treasury  be- 
fore any  contract,  agreement  or  other  obligation  en- 
tailing the  disbursement  of  money  shall  be  entered 
into,  or  any  ordinance  or  other  order  to  that  effect 
shall  be  passed  by  the  commission  or  authorized  by 
an  officer  of  the  city,  unless  the  director  of  finance 
certifies  to  the  person  about  to  transact  the  affair 
that  the  requisite  amount  of  cash  is  in  the  treasury, 
credited  to  the  fund,  appropriated  for  that  purpose, 
and  ready  to  be  expended  when  the  service  is  ren- 
dered. This  certificate  must  be  immediately  re- 
corded and  the  sum  certified  cannot  be  reappropri- 
ated  until  the  obligation  is  discharged. 


THE   DEPARTMENTS  121 

Money  in  Treasury. — This  involves  the  definition 
of  what  is  money  in  the  treasury  to  the  credit  of 
the  fund.  The  answer  is  a  dual  one :  first,  all  moneys 
are  so  regarded  which  are  anticipated  to  come  into 
the  treasury  before  the  maturity  of  the  agreement, 
from  taxes  or  sales  or  credits  in  favor  of  the  city; 
and  second,  all  moneys  applicable  to  the  payment 
of  the  obligation  which  have  already  been  paid  into 
the  city  treasury  prior  to  the  maturity  of  the  con- 
tract, when  derived  from  the  sale  of  property  or 
bonds. 

As  to  this  the  Dayton  charter  says :  "All  moneys 
actually  in  the  treasury  to  the  credit  of  the  fund 
from  which  they  are  to  be  drawn,  and  moneys  .  .  . 
anticipated  to  come  into  the  treasury  .  .  .  shall 
be  considered  in  the  treasury  to  the  credit  of  the 
appropriate  fund." 

The  arrangement  of  departments  under  the  city 
manager  plan  is  notable  for  one  thing  in  this  evolu- 
tion of  city  governments.  A  return  has  been  made 
to  the  old  doctrine  of  the  division  of  powers ;  legis- 
lative and  executive  functions  are  to  be  kept  apart. 
Too  often  reformers  believe  all  that  is  old  is  evil; 
the  truth  of  the  matter  more  frequently  is  that 
it  is  not  the  idea  which  is  useless,  but  the  applica- 
tion of  the  idea  to  modern  conditions.  The  scheme 
of  separation  of  legislative  and  executive  powers 


122  THE   CITY   MANAGER 

is  fundamentally  correct ;  the  utilization  of  the  plan, 
in  the  "old  order"  was  simply  proved  to  be  wrongt 
The  present  adoption  prophesies  more  pleasing 
results. 


CHAPTER   VIII 

FINANCE  MEASURES 

Efficiency  in  municipal  administration  means  doing  the 
things  which  the  citizens  of  the  municipality  want  done 
as  well  as  possible  at  the  smallest  possible  expense. 

William   A.   Prendergast 

The  heart  of  a  business  administration  of  a  mu- 
nicipality is  its  budget.  In  just  that  proportion  of 
excellence  which  the  budget  contains,  in  that  pro- 
portion the  organization  will  be  sound  in  a  com- 
mercial sense.  The  newer  forms  of  government 
have  derived  much  of  their  merit  from  a  strict  in- 
vestigation of  their  finances  and  a  thoughtful,  sane 
provision  for  their  future  monetary  condition. 

The  Vital  Elements. — The  major  considerations 
are  sources  of  income  and  objects  of  expenditure. 
The  city  must  be  placed  upon  a  basis  where  assets 
and  resources  are  accurately  ascertained,  where  costs 
are  predetermined,  where  expenditures  are  made 
for  one  thing  once,  where  wholesale  prices  and  uni- 
form  purchases   can   be   made   in   the  interest   of 

economy. 

123 


124  THE   CITY   MANAGER 

Income  Classification. — A  practical  form  of  clas- 
sification used  in  Dayton  for  estimated  income  is  as 
follows : 

Taxes : 
General 
Liquor  Traffic 
Cigarettes 

Licenses : 
Vehicle 
Venders 

Theaters  and  Shows 
Dogs 

Permits : 

Water  and  Sewer 
Other 

Excise  Taxes : 
Street  Railways 
Electric  Company 

Markets 

City  Scales 

Parks 

Public  Buildings 

Work  House 

Municipal  Court 


FINANCE   MEASURES  125 

Interest  on  Deposits 
Public  Ways — Miscellaneous 
Fire  and  Police 
Inspection  Food  Products 
Refund  Arc  Lights 
Sweeping  Tracks 
Refunds  Cuts  in  Pavements 
Temporary  Loans 
Water  Works  Income 
Estimated  Balances 

Total 

Objects  of  Expenditure  Classification. — A  simi- 
larly useful  classification  was  employed  by  Mayor 
Hunt  in  the  19 13  budget  of  Cincinnati,  and  was 
also  employed  in  Dayton  to  show  objects  of  expen- 
diture.   It  is : 

1.  Personal  Service 

a.  Salaries  and  wages.    (The  number  of  em- 

ployees and  rate  of  wage  under  each 
title  or  grade  shown  in  detail.  Tem- 
porary employees  shown  separately 
with  the  rate  of  wage  and  number  of 
days  of  proposed  service.) 

b.  Fees,     commissions,     etc.,     for     special 

service 


126  THE   CITY   MANAGER 

2.  Transportation  Service 

a.  Hire  of  horses  and  vehicles,  with  or  with- 

out drivers 

b.  Transportation  of  persons 

c.  Storage  of  vehicles 

d.  Shoeing  and  boarding  horses 

e.  Other  transportation  service  (specified  by 

name) 

3.  Communication  Service 

a.  Telephone 

b.  Postage,  telegraph  and  messenger 

4.  Special  Contractual  Service 

a.  Repairs  by  contract  or  open-market  order 

b.  Printing  (reports,  etc.)  and  advertising 

c.  Light  and  power 

d.  Other  special  contractual  services  (speci- 

fied by  name) 

5.  Supplies  and  Material 

a.  Stationery  and  office  supplies 

b.  Stable  and  automobile  supplies 

c.  Fuel 

d.  Forage 

e.  Provisions 

f.  Material 

g.  Other  classes  of  supplies   (specified  by 

name) 


FINANCE   MEASURES  127 

6.  Purchase  of  Land,  Structures  and  Equip- 

ment 

a.  Furniture  and  fixtures 

b.  Vehicles 

c.  Horses  and  other  livestock 

d.  Other  equipment 

e.  Land 

f.  Structures     (buildings,    streets,    sewers, 

bridges,  etc.) 

7.  Fixed  Charges  and  Contributions 

a.  Debt  service 

1.  Interest 

2.  Sinking  fund  installments 

b.  Rent 

c.  Pensions  and  contributions 

d.  Insurance  and  taxes 

e.  Court  costs  and  reimbursements 

f.  Refunds  and  reimbursements 

g.  Other  fixed  charges  and  contributions  (to 

be  specified) 

'Advantages  of  Classification. — The  Dayton  Bu- 
reau of  Research  quotes  Mayor  Hunt  as  advocating 
this  classification  for  the  reasons  here  presented : 

"To  make  each  appropriation  item  so  definite  that 
its  purpose  may  be  clearly  ascertained. 


128  THE   CITY   MANAGER 

"To  prevent,  by  proper  classification  and  arrange- 
ment, the  duplication  of  requests  and  appro- 
priations for  the  same  item  of  expense. 

"To  provide  ready  money  for  determining 
whether  items  requested  in  one  department 
may  more  properly  belong  to  another  depart- 
ment better  equipped  to  handle  the  special 
work  concerned. 

"To  afford  the  best  possible  opportunity  for  ad- 
ministrative officers  to  present  definite  and 
convincing  evidence  of  the  needs  of  their  sev- 
eral departments;  and  to  make  it  possible  for 
Council  to  require  such  evidence  of  adminis- 
trative officers. 

"To  provide  a  ready  means  of  comparing  specific 
items  of  actual  expense  with  specific  items  of 
requested  appropriations. 

"To  furnish  the  Auditor  with  means  for  deciding 
definitely  whether  or  not  claims  presented  to 
him  for  audit  are  properly  chargeable  to  the 
several  appropriation  items. 
"To  state  definitely  the  number  of  employees 
and  the  rate  of  compensation  for  which  each 
item  of  salaries  and  wages  is  requested;  and 
thereby  enable  the  Auditor  to  require  the 
certification  and  approval  of  payrolls  for  pay- 
ment in  such  form  as  to  hold  officials  so  cer- 


FINANCE   MEASURES  129 

tifying  responsible  for  the  truth  or  falsity  of 
the  facts  certified  to. 

"To  make  possible  a  strict  enforcement  of  the 
law  which  limits  the  incurring  of  liabilities 
to  the  amounts  of  the  several  appropriation 
items. 

"To  enable  Council  to  ascertain  whether  or  not 
money  is  spent  for  the  purposes  contemplated 
in  the  appropriation. 

"To  make  it  possible,  by  means  of  a  'functional' 
classification  of  items  under  each  organiza- 
tion unit,  for  Council  to  pass  intelligently 
upon  each  question  of  general  policy  involved 
in  the  consideration  of  the  budget;  and  for 
the  Mayor  to  approve  or  disapprove  items  in 
the  budget  with  due  regard  to  efficiency  in 
the  public  service  as  it  affects  the  health,  edu- 
cation, safety,  recreation  and  convenience  of 
the  community. 

"To  make  it  possible  for  Council,  the  Mayor,  and 
citizens,  by  utilizing  summary  statements,  to 
consider  the  budget  as  a  constructive  commu- 
nity program,  and  not  merely  as  unrelated 
appropriation  items;  and  to  determine  the 
relative  public  importance  of  each  function 
and  activity,  in  the  general  administrative 
scheme  of  the  city  government. 


130  THE   CITY   MANAGER 

"To  furnish  the  basis  for  the  fullest  and  most 
intelligent  consideration  by  Council,  the 
Mayor,  citizens,  taxpayers  and  the  public 
press,  of  the  financial  and  social  program 
contemplated  in  the  budget." 

Official  Reports. — A  competent  understanding 
from  even  a  casual  survey  of  the  financial  condition 
of  a  typical  city  like  Dayton  prior  and  subsequent 
to  reorganization  is  best  founded  upon  the  official 
reports. 

i p 1 3  Auditor's  Report. — The  following  is  a  ver- 
batim copy  of  the  nucleus  of  the  auditor's  report  of 
the  financial  condition  of  the  city  in  the  year  19 13, 
that  is,  prior  to  the  installation  of  the  new  govern- 
ment: 

ACTUAL  FINANCIAL  RESULT  OF  THE  CITY  FOR 
THE  YEAR  1913 

Ordinary  receipts,  as  above,  from  taxation  and 

other  sources,  not  including  money  borrowed.  $1,578,737.01 

Ordinary  expenditures,  as  above,  for  operation 

and  maintenance  (running  expenses) 2,037,297 .  95 

Deficiency  of  ordinary  receipts  for  the  year. . .        458,560.94 

SCHEDULE  A-III 

Exhibit  of  receipts  and  expenditures,  ordinary  and  extraor- 
dinary, grouped  according  to  functions. 


FINANCE   MEASURES 


131 


ORDINARY 


Grand  Divisions  of  Municipal  Functions 


Receipts 


Expenditures 


General  government 

Protection  of  life,  health  and 

property 

Public  service 

Public  indebtedness 

Public  interest 

Public  taxation 

Special  assessments 

Unclassified 


5,608.02 


Total  Ordinary. 


7,349 

254,527 

9,455 

44,327 

1,239,296 

15,153 
20 


$122,487.71 

358,567.49 
463,855-13 

276,028.59 
6,100.04] 

810,258.99 


$1, 578,737-oi 


$2,037,297.95 


EXTRAORDINARY 


Extraordinary  receipts  are  derived  from  sales  of  city  property 
and  from  bonds  sold. 


Grand  Divisions  of  Municipal  Functions 


Receipts 


Expenditures 


General  government 

Protection  of  life,  health  and 
property 

Public  service 

Public  indebtedness 

Special  assessments 

Sinking  fund  investment  trans- 
actions   


Total  extraordinary . 


$1,768,488.63 
I97,990-  55 

40,350.00 
$2,006,829. 18 


$16,299.22 

i4,677-75 
494,684.83 
788,780.00 


,400.00 
51,402,841.80 


In  view  of  the  financial  situation  of  Dayton,  the 
words  "Ordinary"  and  "Extraordinary"  must  have 
been  selected  by  someone  with  a  rare  sense  of 
humor.     The  financial  statement  set  forth  above  is 


i32  THE   CITY   MANAGER 

that  of  a  system  which  was  running  the  city  in  debt 
at  the  rate  of  $60,000  per  year. 

In  contrast  to  this  slipshod  method  of  the  execu- 
tion of  city  affairs,  regard  the  present  monetary  ar- 
rangement. The  data  here  were  secured  by  the 
new  government  in  cooperation  with  the  Bureau  of 
Municipal  Research,  the  latter  body  publishing  the 
report  of  the  budget. 

Income  for  1914. — The  estimated  income  for  the 
year  19 14  was  calculated  at  a  million  and  a  quarter, 
as  follows : 

Taxes: 

General $604,000 .  00 

Liquor  traffic 121,210.00 

Cigarettes 600 .  00 

Licenses: 

Vehicle 10,000 .  00 

Venders 3,200 .  00 

Theaters  and  shows 1,600 .  00 

Dogs 800.00 

Permits: 

Water  and  sewer 7,000 .  00 

Other 1,800.00 

Excise  Taxes: 

Street  railways 2,950 .  00 

Electric  company 3,35°. 00 

Markets 25,500.00 

City  scales 1,300.00 

Parks 2,730 .  00 

Public  buildings 6,100.00 

Workhouse 8,000 .  00 

Municipal  court 20,000 .  00 

Interest  on  deposits 3,870.00 

Public  ways — miscellaneous 684.00 

Fire  and  police 1,250.00 

Inspection  food  products 1,100.00 


FINANCE   MEASURES 


133 


Refund  arc  lights $5,000 . 00 

Sweeping  tracks 10,000 .  00 

Refunds  cuts  in  pavements 10,000 .  00 

7,534-QO 

Temporary  Loans 1 25,000 . 00 

Waterworks  income 229,000.00 

$1,206,044.00 
Estimated  balances 43,956  •  00 

Total $1,250,000.00 


Cost  Estimates. — The  cost  by  character  of  ex- 
penditures  was   thus   estimated : 


Adminis- 
tration 

Operation 

Mainte- 
nance 

Capital 
Outlay 

Total 

Supervisory  Commis- 

$6,600.00 
6,625.00 
2,960.00 

10,600.00 

12,000.00 

117,482.83 

19,235.00 

78,356.66 

10,325.00 
26,166.66 
18,910.00 

$500.00 
200.00 
200.00 

7,125.00 
3,160.00 
19,800.00 

Department  of  Law. . 

Department  of  Public 

$282,393.80 

110,152.50 

324.557-33 

9,200.00 

$125,696.75 
18,233.00 
8,708.50 

37,509.00 
6,225.00 
5.925-oo 

50.00 

563,082.38 

.  153.845-50 

417,547-40 

19,57500 

Department  of  Public 

Department  of  Public 
Safety 

Department    of     Fi- 
nance  

Municipal  Court .... 

Board  of  Elections . . . 

18,910.00 

Total 

$318,261.15 

$726,303.63 

$152,638.25 

$50,609.00 

$1,247,812.03 

or  figured  as  cost  by  organization  units  thus : 


134 


THE   CITY   MANAGER 


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136  THE   CITY   MANAGER 

Budget  of  1914. — In  this  same  report  of  the 
budget  the  quoted  explanation  inserted  here  is  of 
keen  interest  to  the  student  of  municipal  finance, 
not  only  because  of  its  subject-matter  but  also  be- 
cause of  the  form  in  which  it  is  put  for  ready  ref- 
erence for  the  busy  man  to  get  at  and  understand. 
This  whole  report,  of  which  only  a  part  is  quoted 
here,  is  a  model  of  simplicity  and  clearness : 

"The  city  budget  for  1914  is  based  upon  detailed 
estimates  which  were  furnished  the  city  manager  by 
the  heads  of  all  departments.  To  facilitate  a  uni- 
form classification  of  these  proposed  expenditures, 
and  to  secure  the  comparative  data  prescribed  by 
the  charter,  the  manager  invited  the  cooperation  of  a 
budget  commission  appointed  by  him,  and  consisting 
of  the  director  of  finance,  chairman;  the  city  treas- 
urer, and  the  director  of  the  bureau  of  municipal 
research. 

"The  estimates  of  each  departmental  division  have 
been  divided  where  necessary  into  four  main  groups 
by  character  of  expenditures: 

"Administration. — The  cost  of  direction  and 
control  which  is  not  directly  allowable  to  opera- 
tion, maintenance  or  capital  outlays. 

"Operation. — Costs  growing  out  of  the  current 


FINANCE   MEASURES  137 

service  performed  by  a  division  of  the  city  gov- 
ernment. 

"Maintenance. — The  cost  of  care  and  upkeep 
of  physical  properties  and  equipment  as  distinct 
from  the  operation  of  a  division.  The  essential 
feature  of  maintenance  is  repair  and  replacement; 
the  cost  of  labor  and  materials  devoted  to  the 
same. 

"Capital  Outlays. — The  cost  of  acquiring  prop- 
erty for  continuing  use,  usually  equipment,  lands 
and  buildings,  or  labor  and  material  involved  in 
the  creation  of  the  same. 

"Under  each  of  these  heads  appears  a  uniform 
expense  classification  by  objects  or  services  pur- 
chased, with  a  uniform  code  number  to  facilitate 
accounting  operations. 

"Personal  Service 

Ai.     Salaries. 

A2.     Wages. 

A3.     Special  Service. 

"Supplies  and  Materials 

Bi.  Stationery  and  Office  Supplies. 

B2.  Fuel. 

B3.  Provisions. 

B4.  Clothing. 

B5.  Forage  and  Stable  Supplies. 

B6.  Motor  Vehicle  Supplies. 

By.  Mechanical  Supplies. 


138  THE    CITY   MANAGER 

B8.  Cleaning  and  Toilet  Supplies. 

B9.  Medical  and  Laboratory  Supplies. 

Bio.  Manufacturing  and  Jobbing  Supplies. 

Bn.  Materials  for  Lands. 

B12.  Materials  for  Buildings  and  Structures. 

B13.  Materials  for  Equipment. 

B14.  Other  Supplies  by  Name. 

"Services  Other  Than  Personal 

Ci.  Transportation  of  Persons. 

C2.  Telephone  and  Telegraph. 

C3.  Legal  Advertising. 

C4.  Street  Lighting. 

C5.  Light  and  Power. 

C6.  Hire  of  Vehicles  and  Teams. 

Cy.  Subsistence  of  Persons. 

C8.  Public  Entertainment. 

C9.  Other  Contractual  Services  by  Name. 

"Fixed  Charges  and  Contributions 

Di.  Pensions. 

D2.  Donations  to  Private  Institutions. 

D3.  Rent  and  Taxes. 

D4.  Insurance. 

D5.  Loans. 

D6.  Interest. 

D7.  Other  Fixed  Charges  by  Name. 

"Purchase  of  Lands,  Structures  and  Equipment 

Ei.  Land. 

E2.  Buildings. 

E3.  Streets. 

E4.  Sewers. 

E5.  Water  Improvement. 

E6.  Furniture  and  Fixtures  (including  office 
and  departmental  furnishings). 


FINANCE   MEASURES  139 

E7.     Machinery,  Tools  and  Implements  (in- 
cluding instruments  and  apparatus). 
E8.     Live  Stock. 
E9.     Vehicles  and  Harness. 
Eio.  Motor  Vehicles. 
En.  Other  Equipment  by  Name. 

"The  last  column  of  the  ordinance  carries  the 
actual  appropriation  to  the  several  departments, 
there  being  an  appropriation  for  each  of  the  five 
main  expense  subdivisions  if  necessary.  A  transfer 
from  one  appropriation  to  another  is  done  by  reso- 
lution of  the  commission.  The  middle  column 
shows  the  allotment  of  the  appropriation  transfers 
within  this  group  being  made  by  the  city  manager. 
The  first  column  is  from  the  preliminary  estimate 
and  is  to  support  the  appropriation  granted.  For 
example,  the  appropriation  in  Code  125  E7,  $2,357 
for  new  equipment.  This  sum  is  divided  into  three 
allotments,  one  of  which  carries  the  detail  of  the 
departmental  request. 

"This  type  of  budget  has  these  advantages : 

"Careful  departmental  estimates  in  support  of  re- 
quests. 

"Knowledge  of  expenditures  for  each  type  of 
supply  or  service. 

"Adequate  control  over  expenditures  without 
hampering  the  activities  of  the  departments." 

Financial  Division  of  Manager's  Report. — The 


140  THE   CITY   MANAGER 

results  of  this  financial  program,  so  carefully 
thought  out,  analyzed  and  anticipated,  are  succinctly 
set  forth  in  the  following  extract  from  the  report  of 
the  city  manager  for  the  first  six  months  of  his 
regime : 

"DEPARTMENT    OF    FINANCE 
"Division  of  Accounting 

"Reduced  Force. — With  three  less  men  than  for- 
merly the  department  has  transacted  ordinary  busi- 
ness, and  has  taken  over  the  issuing  of  licenses  from 
the  mayor's  office,  and  the  work  of  the  sinking 
fund  trustees. 

"New  Accounting  System. — A  new  accounting 
system  is  being  installed  which  will  equal  the  best 
now  operating  in  any  city.  When  finished  the  city 
will  have  complete  control,  not  only  over  current 
funds,  but  also  over  all  equipment,  stores  and  per- 
manent property.  Dayton  will  then  be  one  of  the 
few  cities  of  the  country  having  a  balance  sheet 
showing:  the  exact  financial  situation  of  the  munici- 
pality. 

"Inventory  of  City  Property. — An  inventory 
of  all  city  property,  stores  and  equipment  has  been 
made  and  will  appear  in  the  next  financial  state- 
ment. As  soon  as  the  accounting  system  is  com- 
pleted this  inventory  will  be  corrected  each  month. 


FINANCE   MEASURES  141 

"Overdrafts  Impossible. — It  is  now  necessary 
that  the  city  accountant  certify  to  the  presence  of 
properly  appropriated  funds  before  an  order  for 
supplies  or  for  services  can  be  placed.  This  abso- 
lutely prevents  expenditures  in  excess  of  cash  and 
the  appropriation. 

"Bookkeeping  Eliminated. — Each  department 
and  the  newspapers  are  now  given  a  monthly  state- 
ment showing  the  expenditures,  reserve  for  con- 
tracts, and  available  balance  in  each  appropria- 
tion. This  system  makes  unnecessary  the  keep- 
ing of  books  in  the  departments,  and  keeps  the 
public  informed  as  to  the  condition  of  public 
funds. 

"City  Budget  Improved. — The  city  budget  for 
the  year  was  prepared  in  great  detail  and  in  ac- 
cordance with  a  uniform  classification  in  order 
that  the  public  might  know  to  what  end  it  was 
proposed  to  spend  funds,  the  number  of  city  em- 
ployees, rate  of  salary  and  wages,  etc.  Copies 
may  be  had  at  the  office  of  the  Finance  Depart- 
ment. 

"More  Revenues  from  Licenses. — By  enforc- 
ing the  license  ordinances  against  junk  dealers, 
dance  halls,  bill  posters,  and  others;  and  by  greater 
vigilance  with  peddlers,  the  receipts  from  this 
source  have  been  doubled. 


142  THE   CITY   MANAGER 

"Division  of  Receipts  and  Disbursements 

"All  Money  in  One  Fund. — By  placing  all  cur- 
rent revenues  in  one  fund,  instead  of  into  several 
separate  funds  as  was  required  when  the  city  was 
without  home  rule,  it  has  been  found  as  yet  unnec- 
essary to  borrow  to  meet  operating  expenses,  al- 
though $125,000  of  floating  debt  has  been  paid. 
While  a  part  of  this  money  will  have  to  be  rebor- 
rowed in  the  fall,  interest  amounting  to  several 
thousand  dollars  has  been  saved. 

"Bills  Paid  by  Check. — Bills  against  the  city 
are  being  paid  by  check,  which  is  mailed  to  the  dealer 
instead  of  his  coming  to  the  office,  saving  his  time, 
and  that  of  the  office. 

"Balances  Returned  to  Sinking  Fund. — The 
state  of  all  bond  funds  has  been  investigated  and 
where  balances  remained,  or  balances  existed  over 
reserves  for  contracts,  these  were  returned  to  the 
sinking  fund. 

"Errors  Corrected. — Errors  in  sinking  fund  cal- 
culations amounting  to  over  $200,000  have  been  dis- 
covered and  corrected.  The  increase  in  sinking  fund 
charges  of  $205,000  over  that  of  1912,  and  the  un- 
equal distribution  of  the  city  debt  is  handicapping 
municipal  progress.  It  is  to  be  hoped  that  some 
plan  of  redistribution  can  be  worked  out. 


FINANCE   MEASURES  143 

"Division  of  Purchasing 

"Purchases  Regulated. — The  creation  of  a 
purchasing  division  permits  of  all  city  supplies  being 
bought  in  quantities  and  at  the  lowest  price.  No 
supplies  are  purchased  until  the  requisition  is 
approved  by  the  department  and  the  city  man- 
ager. 

"Prices  Reduced. — By  making  purchases  in 
quantities  and  letting  orders  to  the  lowest  and  best 
bidders  prices  have  been  reduced  from  10%  to  90% 
over  those  formerly  paid.  This  division  will  reduce 
prices  approximately  $20,000  during  the  year. 

"Supplies  Standardized. — Gradually  the  qual- 
ity and  the  purpose  of  the  supplies  and  materials 
bought  by  the  city  are  being  definitely  determined, 
and  specifications  for  the  same  are  being  prepared. 
This  permits  all  dealers  to  bid  on  an  equal  basis. 

"Bills  Discounted. — Practically  all  orders  is- 
sued by  the  purchasing  division  provide  for  a  dis- 
count of  2%  for  payment  within  ten  days  after 
the  first  of  the  month  following. 

"Samples  of  Saving. — Conceding  that  prices 
fluctuate  from  time  to  time  some  of  the  larger  sav- 
ings over  former  prices  are:  Printed  matter, 
$1,000;  soap,  $312;  electric  lamps,  $144;  coffee, 
$102;  cylinder  oil,  $531;  coal,  $400;  meat,  $560; 


144  THE   CITY   MANAGER 

corporation  cocks,  $700 ;  brass  cocks,  $200 ;  cast  iron 
pipes,  $1,725;  fire  hose,  $1,600." 

Reduction  of  Debt. — In  reference  to  the  matter 
of  the  reduction  of  the  debt  and  running  expenses, 
Mr.  Waite,  of  Dayton,  has  been  quoted  as  saying 
in  September  of  the  first  year  of  his  incumbency: 

"I  believe  we  have  enough  to  see  us  through 
without  causing  the  city  any  extra  indebtedness.  Of 
course  we  must  borrow  back  part  of  the  $125,000 
paid  off  at  the  beginning  of  the  year,  but  as  I  figure 
it  now  I  think  it  is  safe  to  say  that  we  can  reduce 
this  debt  about  $30,000  this  year,  by  saving  the  inter- 
est of  about  $6,000  and  borrowing  only  $100,000." 

And  in  this  connection  the  departments  were  cut 
in  running  expenses  in  this  manner: 

"Welfare,  $8,182.66;  civil  service,  $530;  clerk  of 
commission,  $795;  service,  $11,260.96;  water, 
$2,977.50;  lands  and  buildings,  $1,880;  lighting, 
$200;  finance,  $1,730;  safety  director,  $3,718.06; 
police,  $3,940;  fire,  $6,975;  hospitals,  $3,809.40." 

Saving  Interest  Charges. — A  total  cut  of  $5,000 
was  made.  It  is  to  be  observed  that  keen  judgment 
was  used  when  the  floating  indebtedness  was  re- 
duced $125,000  at  the  beginning  of  the  year  and 
some  of  it  reborrowed  at  the  end  of  the  year  so 
that  a  considerable  interest  charge  could  be  saved 


FINANCE   MEASURES  145 

during  the  interim,  instead  of  carrying  the  whole 
debt  the  whole  year. 

Conclusion. — It  may  seem  rather  absurd  to  the 
layman  who  knows  the  necessities  of  a  private 
business  and  the  care  with  which  the  financial  pro- 
gram must  be  treated,  that  a  public  corporation 
should  so  long  have  neglected  this  fundamental 
provision.  Budgets  have  been  prepared,  it  is  true, 
but  the  general  situation  of  incompetent  financial 
administration  remains  unchanged.  This  new  plan 
is  not  the  origin  of  a  scientifically  prepared  budget, 
it  is  true,  but  it  is  a  plan  which  requires  and  makes 
provision  for  such  a  budget  and  arranges  matters 
so  that  the  public  is  allowed  public  hearings  upon  it 
and  that  publicity  attends  it  and  that  last-minute 
changes  of  political  manipulators  are  not  possible. 
These  are  some  of  the  features  of  the  new  govern- 
ment and  they  afford  vital  reasons  for  its  success. 
While  we  must  constantly  have  in  mind  that  a  pub- 
lic corporation  is  different  from  a  private  corpora- 
tion in  the  particular  of  its  governmental  character, 
that  a  public  corporation  has  a  dual  nature  of  gov- 
ernmental and  proprietary  functions,  yet  in  the 
phase  of  its  private  or  proprietary  character  it  is  no 
whit  alien  to  the  everyday  business  of  any  indus- 
trial enterprise;  the  matter  of  government  does  not 
enter  into  the  question. 


CHAPTER   IX 
EDUCATION  OF  OFFICIALS 

A  system  of  general  instruction  which  shall  reach  every 
description  of  our  citizens,  from  the  highest  to  the  poor- 
est, as  it  was  the  earliest,  so  will  it  be  the  latest,  of  all 
the  public  concerns  in   which  I  shall  permit  myself  to 

take  an  interest. 

Thomas  Jefferson 

The  Problem. — The  greatness  of  a  modern  state 
is  generated  by  the  vigor  of  the  educational  system 
it  has  founded.  No  conception  of  a  social  organi- 
zation which  negatives  or  neglects  the  fundamental 
requisite  of  the  adequate  education  of  its  members 
can  have  hope  of  any  permanent  fortuitous  achieve- 
ments. No  form  of  government  can  achieve  sub- 
stantial solidarity  without  the  beneficent  leavening 
of  a  systematic  training  of  its  citizenship.  Educa- 
tion of  the  people  was,  in  the  lofty-visioned  mind 
of  its  pioneer  advocate  in  a  genuine  democracy, 
Mr.  Jefferson,  the  cornerstone  of  perpetual  accom- 
plishment. Not  for  naught  did  that  canny  states- 
man and  keen  calculator  of  human  affairs  decree 
that  upon  his  tombstone  should  ever  rest  the  me- 

146 


EDUCATION    OF   OFFICIALS  147 

morial  of  his  fathering  a  great  endeavor  of  popular 
learning  to  become  the  capstone  of  his  native  state's 
educational  system,  as  when  he  elected  to  be  known 
as  the  creator  of  the  University  of  Virginia. 

Time  has  but  emphasized  the  wisdom  of  his  ob- 
servation. If  we  desire  to  proceed  to  the  creation 
of  a  new  profession  of  public  officials,  we  must 
provide  the  source  in  arranging  for  their  education. 
You  may  be  born  a  citizen,  but  you  must  be  trained 
to  be  a  competent  official.  Experience  with  the 
unhappy  ignorance,  incompetence  and  inefficiency 
of  past  incumbents  of  official  positions  teaches  us  the 
bitter  lessons  of  unpreparedness  of  those  whom  we 
have  elevated  to  power. 

It  is  stern  business,  this  business  of  education  of 
men  for  officialdom.  As  the  new  government  for 
cities  is  presented  here,  so  also  is  the  method  for 
the  furnishing  of  men  with  training  and  ability  to 
carry  the  new  burdens.  While  it  will  take  time 
to  train  the  new  men  and  much  must  be  accom- 
plished with  those  individuals  who  have  acquired 
their  training  in  devious  ways  without  a  systematic 
course,  yet,  having  created  the  opportunity,  we 
should  equally  endeavor  to  see  that  young  men  are 
given  the  training  to  adequately  fulfill  the  opportu- 
nity for  service  to  themselves  and  the  state  without 
leaving  it  to  the  present  methods  of  chance  educa- 


148  THE    CITY    MANAGER 

tion.  Fortunately,  the  demand  is  small  now,  so 
that  those  who  have  been  trained  at  haphazard  may 
suffice  for  a  while,  but  they  are  few  in  number. 
The  future  will  demand  more,  and  they  must  be 
methodically  provided. 

The  Need. — The  demands  for  the  new  personnel 
of  the  new  profession  will  increase  not  only  for 
commission  managers,  but  others  in  the  ranks  of  ad- 
ministrators and  executives  in  municipal  affairs. 
Many  will  answer  the  call  of  the  tempting  oppor- 
tunities for  public  service  and  personal  achievement 
offered.  They  must  be  educated  to  the  task.  We 
must  provide  for  the  permanent  excellence  of  our 
new  institution.  General  managers,  city  or  com- 
mission managers,  may  not  always  be  with  us  in 
name,  but  the  idea  of  the  plans  they  represent  of 
enlightened  official  administration  has  come  to  stay. 
The  demand  for  trained  men  is  an  assured  thing. 

Methods  of  Education. — This  education  of  those 
destined  to  be  municipal  executives  by  profession 
may  proceed  in  two  ways.  The  first  is  the  present 
method  of  taking  technically  trained  men  with  busi- 
ness experience  who  have  been  selected  or  elected 
to  minor  municipal  positions,  have  acquired  experi- 
ence and  have  then  been  elevated  to  major  adminis- 
trative duties.  We  can  retain  that  method,  of 
course.      Second,   we   can   arrange   the   systematic 


EDUCATION    OF   OFFICIALS  149 

way  of  providing  education  in  our  institutions  of 
learning,  as  colleges,  universities,  technical  insti- 
tutes and  similar  places. 

Efforts  of  Educational  Institutions. — Excellent 
work  has  been  done  already  by  these  institutions. 
They  have  shown  a  wise,  facile  reflection  of  the 
popular  movement  for  and  a  profound  interest  in 
enlightened  local  government.  The  gospel  of  a  new 
political  life  is  finding  teachers  and  disciples.  Har- 
vard University  has  founded  a  Bureau  of  Research 
for  the  training  of  men  to  enter  this  field  of  munici- 
pal investigation.  A  special  series  of  courses  is  of- 
fered in  the  Graduate  School  of  the  same  university 
for  those  who  desire  to  become  secretaries  of  com- 
mercial organizations  and  chambers  of  commerce  in 
the  cities.  Business  law,  accounting,  industrial  or- 
ganization, business  statistics,  railroad  organization, 
investments,  corporation  finance,  railway  and  ship- 
per relationships,  European  and  South  American 
trade,  are  among  the  topics  studied;  a  comprehen- 
sive program.  The  particular  methods  of  the  com- 
mercial organizations  themselves  are  studied,  as  the 
securing  of  industries,  trade  expansion,  adjustment 
of  traffic  problems,  civic  betterment  movements,  and 
the  what-not  of  such  organizations'  multitudinous 
activities.  Actual  field  work,  it  is  understood,  will 
be  undertaken.     The  whole  series  of  courses  will 


150  THE   CITY   MANAGER 

constitute  an  opportunity  for  excellent  training  and 
experience  in  a  political  laboratory. 

Active  with  commendable  forethought  and  wis- 
dom is  the  University  of  Texas,  at  the  other  edge 
of  the  country.  A  bureau  of  research,  particularly 
designed  to  have  the  dual  capacity  of  training  stu- 
dents and  furnishing  information  to  city  officials, 
has  been  created.  The  Harvard  bureau  contem- 
plates mainly  the  training  of  men.  The  Texas 
bureau  is  under  the  direction  of  Professor  Herman 
G.  James,  of  the  university  School  of  Government, 
of  which  the  bureau  is  a  part.  Professor  James' 
suggestions  and  labor  for  specific  training  of  mu- 
nicipal executives  have  been  of  constructive  pioneer 
character  and  the  growth  of  the  new  phase  of  work 
should  have  a  happy  history. 

Progress  in  Late  Years. — The  interest  in  munici- 
pal government  and  the  provision  for  its  study  have 
been  advancing.  As  the  result  of  an  investigation 
in  1908  by  the  National  Municipal  League,  it  devel- 
oped that  one  or  more  courses,  which  were  wholly 
devoted  to  municipal  government,  were  offered  in 
forty-six  institutions,  and  one  hundred  more  insti- 
tutions touched  upon  the  topic  of  municipal  govern- 
ment in  their  general  courses  in  political  science. 
Another  investigation,  upon  a  larger  scale,  was 
launched  by  the  League  in  1912.    Independent  treat- 


EDUCATION    OF   OFFICIALS  151 

ment  of  municipal  government  had  increased  in 
American  institutions  to  the  total  of  sixty-four,  the 
number  of  courses  varying  from  one  to  three,  and 
the  number  of  students  enrolled  varying  from  five 
to  eighty-six.  Fifty-five  institutions  offered  prac- 
tical work.  In  this  connection,  the  Intercollegiate 
Civic  League  has  been  doing  excellent  work  in  en- 
couraging bodies  of  students  to  undertake  prac- 
tical investigations  of  extensive  scope;  the  accom- 
plishments of  the  clubs  composing  this  organization 
have  been  of  a  high  order  under  the  circumstances. 

The  Problem  of  a  Systematic  Course. — There  yet 
remains  any  universal  effort  to  establish  regular 
courses  or  a  series  of  courses  leading  to  specific  ends 
or  degrees  with  the  avowed  single  purpose  of  the 
training  of  the  men  for  official  positions.  The  de- 
partments in  the  universities  and  colleges  of  Engi- 
neering, Law,  Medicine,  Architecture,  Business  Ad- 
ministration, Finance,  and  graduate  work  offer 
many  courses  available  for  a  suitable  combination 
in  conjunction  with  certain  special  courses  to  be 
added  which  would  turn  out  able,  accomplished 
executives. 

Probable  Courses. — In  the  school  of  engineering, 
the  topics  of  municipal  engineering,  sanitary  engi- 
neering, civil  engineering,  engineering  architecture, 
hydraulic  engineering,  rivers  and  harbors,  housing 


152  THE   CITY   MANAGER 

problems  and  electrical  engineering  might  be  sug- 
gested as  especially  interesting  and  helpful.  Like- 
wise in  Law  may  be  included  the  subjects  of  mu- 
nicipal corporations,  codification,  constitutional  law, 
administrative  law,  police  regulations  at  home  and 
abroad,  criminal  law,  insurance,  negotiable  instru- 
ments, interest  and  usury ;  in  Medicine,  hygiene,  pub- 
lic health,  sanitation,  hospital  construction  and  ad- 
ministration, civic  pathology  and  pathological  labo- 
ratories, quarantine,  preventive  medicine,  food  and 
dairy  inspection,  vital  statistics ;  in  Finance,  account- 
ing, municipal  accounting,  budget  making,  taxation, 
sales  and  purchase  methods,  world  markets,  domes- 
tic and  foreign  trade,  banking,  bond  issues;  in 
Architecture,  city  planning,  housing  problems, 
building  codes,  landscape  gardening,  parks ;  in  Busi- 
ness Administration,  transportation,  traffic  problems, 
efficiency  methods,  production  methods,  commercial 
law.  In  general  academic  work  emphasis  could 
be  laid  upon  American  and  European  history,  eco- 
nomics, studies  of  foreign  trade  conditions,  politi- 
cal science,  publicity  organizations,  education, 
mathematics,  sciences,  foreign  languages,  social 
service  and  philanthropy  and  studies  in  crime  and 
poverty.  These  are  but  a  part  of  the  multitude  of 
subjects,  a  large  division  of  which  is  already  effi- 
ciently taught,  and  which  but  remain  to  be  organized 


EDUCATION    OF   OFFICIALS  153 

into  a  course  extending  over  a  predetermined  period 
leading  to  some  such  degree  as  is  now  common,  for 
instance,  an  A.  B.,  A.  M.,  M.  D.,  LL.  M.,  or  to  a 
new  degree  as  Master  of  Public  Works,  or  Bachelor 
of  Municipal  Administration. 

These  courses  would  ally  practical  work  with 
the  lectures  and  library  investigations.  Field  work 
either  in  winter  or  summer  vacations  would  be  re- 
quired as  practical  work  is  required  of  students 
in  engineering  or  agricultural  colleges,  who  go  out 
in  summer  to  the  factories  or  farms  and  learn  to 
meet  actual  problems.  So  it  would  be  with  the 
student  of  municipal  administration.  Work  in  city 
research  bureaus,  on  investigations  and  reports  dur- 
ing the  summer,  in  commercial  organizations,  would 
supplement  the  regular  courses  and  constitute  a 
part  of  the  requirements  to  be  fulfilled  for  gradua- 
tion. 

Municipal  executives  will  not,  of  course,  be 
chosen  direct  from  the  ranks  of  the  newly  gradu- 
ated. They  must  serve  as  minor  officials  or  in 
other  positions  where  business  and  executive  ex- 
perience can  be  had.  How  well  they  acquire  and 
profit  by  that  experience  in  conjunction  with  their 
scholastic  activities  should  determine  the  rate  of 
their  advancement  from  post  to  post  in  the  munici- 
pal field. 


154  THE   CITY   MANAGER 

Happily  this  is  no  longer  the  dream  of  the 
cloistered  fanatic.  We  have  the  opportunity  for 
the  men,  the  men  themselves,  many  of  the  courses 
already  organized,  and  these  but  await  the  final 
consummation  of  the  complete  arrangement  of  a 
collegiate  course  in  municipal  management.  It  is 
to  be  hoped  that  the  educational  institutions  will 
continue  their  progressive  policies  and  grasp  this 
golden  opportunity  for  public  service. 


CHAPTER   X 

ATTITUDE  OF  LABOR  AND  SOCIALISM 

TOWARD   THE   COMMISSION 

MANAGER  PLAN 

Parliament  is  a  deliberative  assembly  of  one  nation, 
with  one  interest,  that  of  the  whole;  where  not  local  pur- 
poses, not  local  prejudices  ought  to  guide,  but  the  general 
good,  resulting  from  the  general  reason  of  the  whole. 

Edmund  Burke 

Introduction. — The  labor  vote  has  become  a  sig- 
nificant factor  in  municipal  politics.  Particularly 
significant  does  it  become  when  it  is  organized 
labor  which  enlists  its  compact  body  in  the  contest; 
labor  then  becomes  a  unit  with  precise  political 
pretensions  of  its  own,  ascertainable  numbers  and 
definite  demands  which  must  be  accounted  for. 

A.s  such  a  vital  force,  its  position  toward  a 
change  in  the  method  of  self-government  is  one  of 
no  mean  import.  A  local  machine  always  counts  up- 
on it  as  one  of  the  recognized  legions;  the  advocate 
of  a  change  in  government  can  do  no  less,  and  must 
often  do  a  great  deal  more  than  the  machine  if  he 
hopes  for  a  reasonable  degree  of  success  in  carry- 

155 


156  THE   CITY   MANAGER 

ing  his  contention  before  the  bar  of  the  people. 
That  is  one  reason  for  accounting  for  the  attitude 
of  labor  toward  this  new  plan. 

Yet,  this  is  rather  the  evidence  than  the  cause 
of  why  we  should  regard  it  closely,  with  attention 
and  respect.  The  cause  lies  in  this,  that  the  labor- 
ing class,  particularly  in  industrial  communities,  is 
composed  of  large  numbers,  is  more  directly  con- 
cerned by  intimate  contact  and  restriction  of  per- 
sonal resources  with  the  problems  of  sanitation, 
health,  hospital,  delinquency,  housing  and  crime. 
The  sources  of  their  livelihood,  the  mode  of  life  of 
the  worker  and  his  opportunities,  as  well  as  the 
usual  crowded  living  conditions  make  him  realize 
in  a  more  personal  way  than  the  other  classes  of 
citizens,  perhaps,  some  of  the  more  vital  problems 
of  our  urban  life.  For  these  reasons,  among  many, 
their  point  of  view  is  of  keen  interest,  political, 
economic,  and  social,  when  that  point  of  view  is 
expressive  of  an  attitude  toward  a  radical  change 
in  the  form  of  government  of  one  of  our  basic 
political  units,  the  city. 

Labor  has  taken  a  profound  interest  in  the  po- 
litical changes  dealing  with  municipal  reform  oc- 
curring within  the  last  few  years.  In  Des  Moines 
a  labor  leader  became  a  commissioner,  down  in 
Wichita  a  switchman  on  a  railway  was  elected  to  a 


ATTITUDE   OF   LABOR   AND    SOCIALISM    157 

similar  position,  as  was  a  barber  in  Topeka.  And 
the  interest  of  labor  has  not  been  sporadic  as  the 
steady  number  of  labor  candidates  and  labor  men 
elected  attest.  That  is  normal,  hopeful  and  fair. 
It  is  encouraging  that  a  class  needing  representa- 
tion is  interested  and  properly  represented ;  it  is  an 
insurance  of  the  democracy  of  our  new  institutions. 

So  it  has  been  under  the  city  manager  plan.  Day- 
ton proved  the  inherent  democracy  of  its  new  gov- 
ernment by  electing  to  the  body  of  commissioners  a 
laboring  man,  a  typesetter.  His  election  was  pleas- 
ing and  significant  for  this  reason,  among  others, 
in  that  it  indicated  the  interest  of  his  constituents, 
laboring  men;  in  that  all  classes  would  have  a 
voice;  and  in  that  the  laboring  man  could  not  com- 
plain that  his  views,  his  problems,  his  needs  and 
desires  were  not  presented  by  a  man  who  under- 
stood him,  was  one  of  him,  was  his  brother  at  his 
daily  task;  and  the  laboring  man  on  the  board,  no 
matter  what  his  talents  and  experience  in  adminis- 
tration, can  assist  his  fellow-commissioners  by  the 
contribution  of  his  special  knowledge  of  many 
phases  of  city  life  and  the  problems  of  several  of 
the  urban  classes. 

In  the  choice  of  a  laboring  man  for  the  position 
of  commissioner  much  objection  was  logically  raised 
in  the  past,  because  such  a  commissioner  was,  per- 


158  THE   CITY   MANAGER 

force,  obligated  to  perform  certain  administrative 
duties  which  his  previous  experience,  opportunities 
and  training  scarcely  fitted  him  for  in  many  in- 
stances. This  stumbling-block  is  removed  in  the 
city  manager  plan.  The  mastery  of  departmental 
details,  the  competent  disposal  of  administrative 
problems  by  his  personal  settlement,  the  technical 
knowledge,  the  business  experience,  are  no  longer 
necessary  on  the  part  of  the  commissioner  to  the 
consequent  benefit  of  the  city  and  himself.  His 
election  is  now  more  feasible,  for  the  chief  objec- 
tion of  his  opponent  detractors  is  removed,  to  the 
benefit  of  his  constituents.  The  generality  of  the 
charge  of  administrative  inexperience  upon  the  part 
of  the  labor  candidate  is  not  assumed  to  reflect 
upon  his  ability,  but  is  assumed  to  meet  the  op- 
ponents of  his  election  upon  their  own  ground, 
adopting  their  most  pessimistic  view  of  the  situa- 
tion. Under  the  city  manager  plan  he  sits  in  a 
position  where  his  sound  common-sense  and  prac- 
tical judgment  may  contribute  their  meed  of  advan- 
tage without  diminishing  their  effect  by  unwitting 
blunders ;  if  right,  his  opinions  will  sway  other  fair- 
minded  members  of  the  board  while  they  are  de- 
ciding upon  and  formulating  policies  for  the  ad- 
ministration of  the  city's  affairs;  if  wrong,  he  can 
be  corrected  or  outvoted.    His  viewpoint  will  always 


ATTITUDE   OF   LABOR   AND    SOCIALISM    159 

be  valuable  to  men  conscientiously  willing  to  admin- 
ister the  municipal  corporation  for  the  major  inter- 
ests of  all  the  constituent  classes  comprising  its 
population. 

It  is  in  this  manner  that  the  city  manager  plan 
enlarges  the  scope  of  popular  choice,  silences  the 
assailants  of  commission  government  who  argue 
that  the  feature  of  a  commission  is  but  a  measure 
of  "special  privilege"  rule,  and  approaches  the  near- 
est to  a  really  satisfactory  representative  govern- 
ment. 

With  the  elimination  of  the  one-man  rule  of 
mayor  under  former  governments,  the  laboring  men 
no  longer  need  fear  the  dominance  of  a  powerful 
element  who  control  that  mayor  and  are  hostile  to 
the  laboring  man's  interests,  leaving  him  without 
an  effective  voice  raised  in  his  own  behalf.  Nor 
will  there  be  need,  in  order  to  secure  whatever  ad- 
vantages he  desires  for  himself,  and  which  he  ought 
fairly  to  have,  to  trade  in  councilmen  or  take  part 
in  log-rolling  or  consistently  engage  in  the  dicker 
of  the  wards.  It  should  be  plainly  understood  that 
this  plan  does  not  propose  to  eliminate  the  neces- 
sity of  any  interest,  on  the  part  of  labor,  as  in  ac- 
tually participating  in  governmental  affairs.  Nor 
does  it  eradicate  the  vital  element  of  the  laboring 
man's  interest,  but  it  does  more  largely  assure  that 


160  THE   CITY   MANAGER 

if  he  is  interested,  he  may  nominate,  and  have  a 
fair  chance  to  elect,  and  electing  his  man,  know 
that  his  choice  will  be  an  effective  element  in  the 
competent  administration  under  which  he  desires  to 
live.  There  is  always  an  opportunity  for  fair 
play. 

In  the  campaign  in  Springfield,  Ohio,  which  led 
to  the  election  of  the  charter  framers,  the  adop- 
tion of  the  charter,  and  the  election  of  the  com- 
missioner, the  Trades  and  Labor  Assembly  was 
officially  and  actually  in  favor  of  the  movement, 
and  cooperated  with  the  civic  and  commercial  or- 
ganizations for  the  city  in  the  final  securing  of  the 
results.  The  presidents  of  the  Trades  and  Labor 
Assembly,  the  Merchants'  Association  and  the  Com- 
mercial Club  formed  the  working  nucleus  of  the 
whole  reform  organization;  the  new  charter  with 
its  radical  proposals  and  effective  plans  for  business 
administration  was  the  one  ground  of  compromise 
and  the  adjustment  of  many  difficulties.  It  was  a 
matter  of  some  profound  surprise  to  several  ele- 
ments of  the  citizen  body  who  had  theretofore  re- 
garded themselves  as  at  variance  in  many  particu- 
lars, to  find  that  they  could  meet  at  the  point  of 
both  desiring  a  great  many  radically  good  things. 
The  labor  interests  have  continued  to  take  an  active 
part  in  the  new  government  since  the  election  of  the 


ATTITUDE    OF   LABOR   AND    SOCIALISM     161 

commissioners,  and  in  many  particulars,  as  in  the 
franchise  granted  to  the  gas  and  electric  light  com- 
panies, or  the  proposed  franchises,  they  have  carried 
on  energetic  propaganda  and  representations  of  their 
position.  Such  activity  and  interest,  while  it  may 
not  always  conform  to  the  views  of  the  majority 
in  any  community,  is  a  sign  of  high  hope  for  the 
success  of  our  new  institutions. 

The  result  of  the  election  of  the  commissioners 
in  Springfield  showed  that  a  laboring  man,  a  fore- 
man in  a  printing  shop,  and  one  understood  to  be 
an  enthusiastic  union  advocate,  was  a  member  of 
that  body.  The  other  members  of  the  board  were 
leading  officers  of  vast  industrial  enterprises  and 
each  one  of  them  was  a  director  in  one  of  the  sev- 
eral national  banks.  The  new  board  therefore  as- 
sumed a  cosmopolitan  aspect  and  insured  the  rep- 
resentation of  alien  interests. 

In  the  city  of  Dayton,  labor  assumed  a  somewhat 
dual  position.  It  was  reported  at  the  time,  and 
there  was  every  official  evidence  of  it,  that  organ- 
ized labor  was  bitterly  opposed  to  the  city  manager 
plan.  The  early  part  of  the  -campaign,  and  indeed 
a  good  deal  of  the  latter  part,  brought  forth  a 
number  of  instances  of  this  opposition.  For  in- 
stance, the  press  reported  the  following  resolution 
as  having  been  passed  to  indicate  the  official  expres- 


162  THE   CITY   MANAGER 

sion  of  the  laboring  man  in  Dayton.  No  comment 
is  made  upon  the  contents  of  this  resolution;  its 
interesting  character  as  a  document  of  progressive 
nature  is  sufficiently  apparent  from  the  arguments 
appearing  upon  its  face.  It  is  left  to  stand  upon 
its  own  merit.  It  is  left  to  stand  upon  whatever 
merit  it  may  contain. 

"Whereas,  the  City  of  Dayton  will  hold  on  May 
20,  19 1 3,  a  special  election  to  choose  fifteen  charter 
commissioners  to  draft  a  new  charter  for  the  city; 
and 

"Whereas,  The  Chamber  of  Commerce,  the 
Manufacturers'  Association,  and  in  fact  all  the  or- 
ganized money  interests  of  the  city  are  actively  ad- 
vocating the  so-called  City-Manager  form  of  munici- 
pal government;  and 

"Whereas,  in  advocating  this  plan  they  have 
used  campaign  methods  which  we  condemn,  namely, 
by  trying  to  create  the  impression  that  organized 
labor  or  a  considerable  portion  of  it  has  indorsed 
their  plan  because  a  'prominent'  member  of  organ- 
ized labor  has  been  selected  as  one  of  their  candi- 
dates; and 

"Whereas,  the  method  of  selecting  these  candi- 
dates was  automatic  and  the  reverse  of  democratic, 
and  the  candidates  were  selected  absolutely  by  the 


ATTITUDE   OF   LABOR   AND    SOCIALISM     163 

Chamber  of  Commerce  without  consulting  the 
wishes  of  organized  labor  or  the  working  class  in 
general;  and 

"Whereas,  we  recognize  in  this  City-Manager 
Plan  a  conspiracy  to  overthrow  the  liberties  of  the 
people  and  place  the  city  government  in  the  hands 
of  the  Chamber  of  Commerce  and  the  big  business 
interests,  as  has  been  proved  by  the  history  of 
Commission  Government  in  other  cities;  and 

"Whereas,  we  recognize  in  the  'non-partisan' 
feature  of  the  plan  an  attempt  to  increase  the  cost 
of  running  for  public  office  and  to  make  it  prac- 
tically impossible  for  a  workingman  to  obtain  pub- 
lic office  except  with  the  support  of  the  employing 
class;  and 

"Whereas,  the  income  of  the  city  in  the  past 
has  been  inadequate,  owing  to  the  giving  away  of 
valuable  public  franchises  to  private  corporations 
and  the  rebuilding  of  the  city  will  require  a  greatly 
increased  revenue,  and  the  City-Manager  program 
includes  no  plan  for  raising  this  revenue  outside  of 
bond  issues  as  in  the  past;  and  in  fact  their  whole 
appeal  is  based  upon  the  personal  popularity  and 
glory  of  individuals  who  became  prominent  during 
our  recent  disaster  with  which  they  seek  to  dazzle 
and  blind  the  workers  to  the  fact  that  while  they 
share  in  none  of  the  glory,  the  workers  themselves 


1 64  THE   CITY   MANAGER 

must  in  the  end  rebuild  the  city  and  bear  the  finan- 
cial burden  as  well ;  therefore, 

"Be  It  Resolved,  That  we,  the  United  Trades  and 
Labor  Council  of  Dayton,  most  emphatically  con- 
demn the  City-Manager  Plan  as  being  hostile  to 
the  interests  of  the  organized  workers  and  the  work- 
ing class  in  general,  for  the  following  reasons : 

"i.  The  City-Manager  Plan  comprehends  the 
concentration  of  both  administrative  and  legislative 
power  in  the  hands  of  three  men — to  this  we  object. 

"2.  The  underlying  principle  of  the  City-Man- 
ager Plan,  is  distrust  of  the  people. 

"3.  We  firmly  believe  that  the  mayor  should  be 
the  chief  executive  officer  of  a  municipality,  and 
that  he  should  be  elected  directly  by  the  people. 

"4.  The  City-Manager  Plan  almost  wholly  elim- 
inates the  possibility  of  minority  representation, 
which  in  our  judgment  is  a  fatal  mistake. 

"5.  The  City-Manager  Plan  provides  that  the 
Commission  shall  appoint  the  Civil  Service  Commis- 
sion— this  is  not  only  objectionable  but  unjust,  giv- 
ing the  appointing  power  absolute  control  of  the 
civil  service  board. 

"6.  It  is  built  upon  an  idea  imported  from  a  coun- 
try village,  its  leading  advocates  are  imported  hire- 
lings of  unknown  interest,  it  is  possible  under  this 
plan  to  import  a  full  corps  of  city  officials  from 


ATTITUDE   OF   LABOR   AND    SOCIALISM    165 

some  other  city,  under  the  guise  of  trained  adminis- 
trators. 

"7.  It  can  and  will  lead  to  the  grossest  kind  of 
extravagance;  no  one  knows  what  it  will  cost  our 
taxpayers  and  working  people. 

"8.  It  is  certain  to  bring  into  operation  a  brand 
of  politics  more  vicious  than  what  we  have  ever 
had,  which  will  result  in  a  manager  being  selected 
who  could  not  possibly  be  elected  by  a  majority  of 
votes  of  the  people. 

"9.  We  do  not  believe  in  the  importing  of  Pro- 
fessional Promoters  to  select  a  plan  or  men  to  run 
our  city. 

"Be  It  Further  Resolved,  That  all  delegates  from 
organizations  affiliated  with  the  United  Trades  and 
Labor  Council  report  this  action  back  to  their  re- 
spective organizations,  and  that  a  copy  of  these 
resolutions  be  sent  to  all  newspapers  of  this  city 
with  the  request  that  they  publish  them  in  full. 

"The  United  Trades  and  Labor  Council  indorses 
all  candidates  who  carry  a  union  card  on  condition 
that  if  elected  they  agree  to  support  the  principles 
embodied  in  the  United  Trades  and  Labor  Council 
constitution  in  drafting  a  new  charter  for  the  city  of 
Dayton. 

"The  following  candidates  have  agreed  to  do  so : 

"Dan  P.  Farrell,  carpenter 


166  THE   CITY   MANAGER 

"W.  H.  Buzzard,  painter 
"A.  I.  Mendenhall,  printer 
"Gustave  Robert,  molder 
"Chas.  B.  Grant,  plumber 
"Chas.  J.  Fulwiler,  pattern-maker 
"Willard  Barringer,  printer 
"United  Trades  &  Labor  Council 

"Frank  H.  Sweny,  Sec'y." 

It  was  claimed  from  some  labor  sources  that  this 
resolution  had  not  been  submitted  for  official  sanc- 
tion and  did  not  express  the  actual  opinions,  wills 
and  desires  of  the  laboring  class.  Observers  and 
actual  workers  in  the  campaign  who  were  in  daily 
touch  with  every  movement  do  not  agree  that  this 
resolution  is  representative  of  labor,  and  the  result 
at  the  polls  indicates  that  the  attitude  of  labor  was 
the  very  reverse  of  what  this  resolution  would  in- 
dicate. It  is  certainly  fair  to  say,  from  a  dispas- 
sionate review  of  the  facts,  that  labor  took  an 
active  and  intelligent  part  in  the  campaign.  As 
matters  of  this  sort  rest  so  largely  in  opinion,  it 
would  be  out  of  place  to  make  any  comment  upon 
their  attitude  one  way  or  the  other,  and  one  must 
be  content  with  a  record  of  the  facts. 

Labor  elected  one  of  its  number  to  the  board 
of  commissioners.     The  rank  and  file,  therefore, 


ATTITUDE   OF   LABOR   AND    SOCIALISM    167 

must  have  been  in  greater  accord  than  this  resolu- 
tion predicts.  A  strong  argument  during  the  cam- 
paign was  made  to  those  laboring  men,  of  whom 
there  seem  to  be  a  large  number,  who  owned  their 
homes,  or  who  were  in  the  process  of  acquiring 
entire  ownership  of  them,  and  who  had  a  very  sub- 
stantial interest  in  progressive  administration  of  city 
affairs.  The  opinion  of  the  man  who  was  thus  ad- 
vancing his  own  interests  so  commendably  by  ac- 
quiring a  home,  was  of  course  of  more  import  than 
that  of  the  man  who  was  a  member  of  the  floating 
class  of  labor. 

No  clearer  review  or  estimate  of  the  actual  atti- 
tude of  this  force  can  be  had  until  you  also  con- 
sider the  Socialist  element.  In  Springfield,  the  So- 
cialist party  did  not  play  a  particularly  effective 
part  as  an  individual  factor  in  the  campaigns.  In 
Dayton,  they  played  a  noticeable  part,  but  in  the 
final  result  one  that  could  not  be  designated  as 
effective.  They  had  much  to  do  with  the  attitude 
of  the  labor  element,  as  the  membership  in  the  re- 
spective organizations  of  both  labor  and  Socialism 
seem  to  largely  overlap.  The  meetings  preliminary 
to  the  elections,  a  vast  number  of  which  were  held 
in  all  sections  of  the  city,  were  characterized  in 
many  instances,  as  reported,  by  a  great  deal  of 
questioning,  interested  comment,  and  some  heckling 


168  THE   CITY   MANAGER 

on  the  part  of  those  who  presumably  held  socialistic 
views.  That  was  normal  campaign  interest  and 
enthusiasm.  They  also  held  meetings  of  their  own 
or  proposed  such  meetings.  Their  candidate  or 
leader  was  reported  to  have  answered  that  he  would 
have  nothing  to  do  with  the  charter  committee  be- 
cause the  chairman  of  that  committee  had  stated 
that  party  politics  was  to  be  eliminated,  the  good 
of  the  municipality  was  alone  to  be  considered  and 
that  those  dealing  with  the  committee  would  be  ex- 
pected to  do  so  upon  those  terms.  The  course 
adopted  by  the  Socialists  was  one  that  necessitated  a 
strict  adherence  to  party  lines  and  party  organiza- 
tion. They  would  have  nothing  else  apparently. 
The  whole  spirit  of  the  movement  was  the  elimina- 
tion of  party  lines  and  party  politics.  The  conflict 
resultant  is  obvious.  Other  organizations,  in  the 
main,  obliterated  such  distinctions  and  came  into 
the  fold  of  the  general  movement  for  the  common 
good.  The  chiefest  objection  the  Socialist  element 
advanced  to  the  new  charter  was  the  high  rate  of 
percentage  necessary  to  start  the  recall,  initiative 
or  referendum.  They  claimed  that  the  proposals 
had  been  thus  rendered  ineffective.  The  scheme  of 
preferential  voting  was  vigorously  urged.  The  net 
result  of  this  opposition  by  the  socialistic  organiza- 
tion was  that  the  lowest  man  proposed  by  the  citi- 


ATTITUDE   OF   LABOR   AND    SOCIALISM    169 

zens'  committee  as  a  member  of  the  charter  com- 
mission secured  double  the  vote  of  the  Socialist 
leader. 

In  Cleveland,  Ohio,  in  a  campaign  for  a  charter 
where  a  similar  provision  as  to  the  initiative  and 
referendum  was  advanced,  the  Socialist  party  fa- 
vored the  scheme.  In  Sandusky,  Ohio,  which  re- 
cently, in  August,  19 14,  adopted  a  city  manager 
charter,  the  Socialists  were  in  favor  of  the  plan  as 
a  whole,  and  these  articles  in  particular.  The  con- 
flict of  opinion  as  thus  exhibited  in  actual  practice 
indicates  the  enormous  difficulty  of  drawing  any 
conclusive  opinion  as  to  the  attitude  of  this  force 
in  municipal  reform. 


CHAPTER   XI 
CITY  MANAGER  STATUTES 

All  power  may  be  abused  if  placed  in  unworthy  hands. 

Chief  Justice  Taney 

From  the  time  when  Staunton,  Virginia,  en- 
countered the  obstacle  of  the  state  constitution  and 
state  statutes,  and  from  the  time  when  the  New 
York  legislature  rejected  the  "Lockport  plan,"  the 
enactment  of  suitable  statutes  has  been  the  initial 
struggle  in  each  state  for  the  right  of  a  city  to 
have  a  manager.  In  Ohio,  it  was. not  until  a  new 
convention  was  proposed  by  the  constitutional  con- 
vention in  191 2  and  enacted  by  the  people,  that  the 
city  manager  plan  became  a  tangible  possibility. 
The  chiefest  vantage  ground  of  the  reactionary 
forces  was  in  the  antiquated  provisions  of  the  fun- 
damental laws  of  each  state. 

The  analyses  of  the  state  laws  of  the  following 
commonwealths  have  been  made  by  The  National 
Short  Ballot  Organization  and  are  herewith  re- 
produced through  the  courtesy  of  that  organiza- 
tion. 

170 


CITY   MANAGER    STATUTES  171 

"A.   THE   LOCKPORT   PLAN. 

[The  so-called  "Lockport  plan"  was  embodied  in 
a  bill  introduced  in  the  New  York  legislature  in 
191 1,  but  never  passed.  In  form  it  is  a  general 
enabling  act  applicable  to  any  city  of  the  third 
class  (that  is,  one  having  a  population  of  less  than 
50,000)  upon  adoption  by  local  referendum,  and 
would  have  supplemented  the  special  city  charter. 
Many  of  the  sections  of  the  measure  have  to  do 
with  conditions  local  to  New  York  state  and,  hence, 
are  only  included  here  by  number  and  title.  As 
the  sections  dealing  with  elections  and  general  cor- 
porate powers  of  the  city  do  not  belong  distinc- 
tively to  the  city  manager  plan,  they  are  also 
omitted.  This  bill  has  been  used  as  a  model  for 
practically  all  the  subsequent  city  manager  charters.] 

"The  people  of  the  State  of  New  York,  repre- 
sented in  Senate  and  Assembly,  do  enact  as  follows: 

"ARTICLE  I. 

"GENERAL  PROVISIONS. 

"Sec.  1.  Short  Title.  This  act  shall  be  known 
as  The  Optional  Third  Class  Cities  Law.' 

"Sec.  2.     The  Term  City.    The  term  city  as  used 


172  THE   CITY   MANAGER 

in  this  act  shall  apply  only  to  such  cities  of  the 
third  class  as  shall  adopt  or  shall  seek  to  adopt  this 
act. 

"Sec.  3.  Corporate  Powers.  The  corporate 
powers  of  the  city  as  defined  in  the  charter  are 
hereby  confirmed. 

"Sec.  4.  Application  of  This  Act.  The  provi- 
sions of  this  act  shall  apply  to  all  cities  of  the  third 
class  which  shall  adopt  the  same,  as  a  whole,  and 
shall  file  such  notices  of  the  adoption  of  the  same 
as  are  herein  provided,  with  the  County  Clerk  of 
the  county  in  which  the  city  is  situated. 

"ARTICLE  II. 

"ADOPTION  OF  THIS  ACT. 

"Sees.  5  to  9,  Inclusive.  [Provisions  for  sub- 
mission of  the  question  of  adoption  by  the  city  to 
popular  vote,  record  of  result  of  vote,  etc.]   • 

"ARTICLE  III. 

"REORGANIZATION    UNDER   THIS    ACT. 

"Sec.   10.     First  Election  under  this  Act. 
"Sec.    11.     Term  of  First  City  Council. 
"Sec.   12.     The  Period  of  Reorganization. 


CITY   MANAGER    STATUTES  173 

"Sec.  13.  Redistribution  of  Corporate  Func- 
tions. 

"Sec.  14.  Restrictions  on  Such  Redistributions. 

"Sec.  15.  Succession  of  Functions. 

"Sec.  16.  No  New  Corporate  Power. 

"Sec.  17.  Organization  within  Departments. 

"Sec.  18.  Special  Authority  to  Borrow. 

"ARTICLE   IV. 

"ELECTION   AND    RECALL    OF    OFFICERS. 

[The  text  of  Sees.  19  to  23,  inclusive,  follow 
closely  the  charter  of  Berkeley,  California  (q.  v.)] 

"Sec.  24.  Nomination  by  Deposit.  (1)  In  lieu 
of  a  petition  of  nomination  a  deposit  of  fifty  dollars 
in  legal  tender  may  be  made  by  any  candidate  for 
the  office  of  alderman  and  his  name  shall  be  en- 
tered upon  the  official  ballot  in  all  respects  as  if  a 
petition  had  been  filed  and  accepted.  The  city  clerk 
shall  give  to  such  candidate  a  receipt  for  such  de- 
posit, which  shall,  in  every  case,  be  sufficient  evi- 
dence of  the  payment  therein  mentioned. 

"(2)  The  sum  so  deposited  by  any  candidate 
shall  be  returned  to  him  in  the  event  of  his  obtain- 
ing a  number  of  votes  at  least  equal  to  fifteen  per 
centum  of  the  number  of  votes  cast  for  any  candi- 


174  THE   CITY   MANAGER 

date  elected.     Otherwise  such  sum  shall  belong  to 
the  city  for  its  public  uses. 

"(3)  The  sum  so  deposited  shall,  in  the  case  of 
the  death  of  any  candidate  after  being  nominated 
and  before  the  election,  be  returned  to  the  legal  rep- 
resentative of  such  candidate. 

"ARTICLE  V. 

"THE   CITY    COUNCIL. 

"Sec.  25.  Legislative  Power  Vested.  The  legis- 
lative and  general  regulative  powers  of  the  city  shall 
be  vested  in  a  city  council  which  shall  consist  of 
five  aldermen  elected  at  large.  There  shall  be  no 
other  elective  officers  of  the  city. 

"Sec.  26.  Term  of  Aldermen.  The  term  of 
aldermen  shall  be  four  years,  subject  to  recall  by  the 
voters  of  the  city,  as  hereinbefore  provided  by  this 
act. 

"Sec.  27.  Resignations.  Any  alderman  may  re- 
sign at  any  time  and  his  office  shall  be  filled  by  the 
remaining  members. 

"Sec.  28.  Qualifications.  The  qualifications  of 
aldermen  shall  be  the  highest  non-professional  or 
non-technical  qualifications  specified  for  any  officer 
under  the  charter. 


CITY   MANAGER   STATUTES  175 

"Sec.  29.  Compensation.  Aldermen  shall  re- 
ceive such  salary,  if  any,  as  is  granted  by  the  char- 
ter. But  the  city  council  may  determine  upon  an 
amount  which  they  may  consider  a  just  and  ade- 
quate compensation  for  their  public  services  and 
may  submit  a  proposition  to  the  qualified  electors 
of  the  city,  at  any  regular  or  special  election,  to 
fix  their  compensation  in  that  amount.  Such  propo- 
sition shall  be  submitted  in  the  following  form: 
'Shall  the  compensation  of  aldermen  be  fixed  at 
(insert  amount)  ?'  If  a  majority  of  the  electors 
voting  shall  vote  affirmatively  on  such  proposition, 
the  salaries  shall  be  fixed  accordingly,  to  take  effect 
on  the  first  day  of  the  calendar  month  next  succeed- 
ing the  official  canvass  of  the  vote  and  shall  not  be 
refixed  except  by  the  same  process. 

"Sec.  30.  Eligibility  for  Other  Offices.  No 
alderman  shall  be  eligible  for  any  other  municipal 
office  during  the  term  for  which  he  shall  have  been 
elected,  except  in  such  ex-officio  capacities  as  are 
provided  for  in  this  act,  for  which  he  shall  receive 
no  additional  compensation.  The  acceptance  of 
any  other  public  office  shall  operate  to  vacate  his 
membership  in  the  city  council. 

"Sec.  31.  Meetings  of  City  Council.  (1)  The 
city  council  shall  meet  for  special  purposes  at  all 
such  times  as  are  fixed  therefor  by  the  charter. 


176  THE   CITY   MANAGER 

(2)  An  ordinance  shall  be  passed,  before  this  act 
shall  be  declared  to  be  in  full  operation,  providing 
a  schedule  of  regular  sessions  to  occur  not  less 
frequently  than  is  fixed  by  the  charter,  and  for  the 
special  sessions  at  which  the  city  council  shall  act  in 
the  capacity  of  Board  of  Estimate  and  Apportion- 
ment and  as  the  ex-ofncio  governing  board  of  any 
corporate  bodies  within  the  municipality  as  herein- 
after provided. 

"(3)  Any  two  members  may  call  a  meeting. 

"(4)   All  meetings  shall  be  public. 

"(5)  Any  citizen  may  have  access  to  the  minutes 
upon  application  to  the  city  clerk. 

"CITIZEN'S   MOTION. 

"(6)  Any  citizen  may  appear  before  the  city 
council  at  any  of  its  regular  meetings  and  may 
present  a  printed  motion.  Said  motion  shall  be 
acted  upon  by  the  city  council,  in  the  regular  course 
of  business,  within  fifteen  days. 

"Sec.  32.  Quorum.  Three  members  shall  con- 
stitute a  quorum  to  transact  business,  but  a  smaller 
number  may  adjourn  from  day  to  day  and  compel 
the  attendance  of  absent  members. 

"Sec.  33.  Passage  of  Measures.  Three  votes 
shall  be  required  to  pass  any  measure  involving  the 


CITY   MANAGER    STATUTES  177 

expenditure  of  money,  confirming  appointments  or 
removals,  granting  a  franchise,  or  authorizing  a 
bond  issue.  A  simple  majority  shall  suffice  for  the 
passage  of  any  other  measure.  The  signature  of 
the  mayor  shall  not  be  required  in  any  case. 

"Sec.  34.  No  Member  Excused.  No  member 
shall  be  excused  from  voting  except  on  matters  in- 
volving the  consideration  of  his  own  official  con- 
duct. In  all  other  cases  a  failure  to  vote  shall  be 
entered  on  the  minutes  as  a  negative  vote. 

"Sec.  35.  Mayor  to  Preside.  The  mayor  shall 
preside  at  all  sessions  and  shall  have  two  votes  in 
case  of  a  tie. 

"Sec.  36.  Succession  of  Functions.  The  city 
council  shall  succeed,  severally  and  collectively,  to 
all  such  powers,  duties  and  penalties  for  non-per- 
formance or  malfeasance,  as  are  conferred,  imposed 
or  inflicted  upon  common  councils  and  aldermen  and 
councilmen  in  cities  of  the  third  class  by  the  general 
laws  of  the  state  and  the  charter,  and  are  not  in- 
consistent with  the  provisions  of  this  act.  They 
shall  likewise  succeed  to  all  the  powers  heretofore 
exercised  by  the  several  officers  and  boards  of  the 
city  government,  except  as  hereinafter  specified. 
And  it  is  further  provided  that  the  limitations  laid 
down  in  the  charter  and  in  the  general  laws  of  the 
state  with  regard  to  the  exercise  of  powers  and  du- 


178  THE   CITY   MANAGER 

ties  by  the  several  administrative  officers  and  boards, 
shall  be  applicable  to  the  exercise  of  the  said  pow- 
ers and  duties  by  the  city  council,  when  said  city 
council  shall  succeed  to  the  said  powers  and  duties, 
in  so  far  as  said  limitations  are  not  in  conflict  with 
the  provisions  of  this  act. 

"Sec.  37.  Powers  and  Duties  of  City  Council 
enumerated. 

"Sec.  38.  Control  Over  Administrative  Depart- 
ments. 

"(1)  The  city  council  shall  have  power  and  it 
shall  be  their  duty  to  issue  general  and  special  or- 
ders, by  resolution,  to  the  city  manager,  giving  him 
authority  to  carry  out,  in  accordance  with  law,  the 
administrative  powers  and  duties  conferred  and  im- 
posed upon  the  city. 

"(2)  They  shall  require  the  city  manager  to  pre- 
sent, once  a  year,  a  complete  report,  financial  and 
otherwise,  of  the  activities  of  the  several  depart- 
ments of  the  city  government,  and  special  reports  at 
any  time. 

"(3)  In  cities  where  the  charter  provides  for  a 
Board  of  Estimate  and  Apportionment,  that  body 
shall  consist  of  the  city  council  meeting  in  special 
session,  public  notice  whereof  shall  have  been  given 
as  provided  by  Sec.  31  of  this  article.  At  such 
special  session  the  city  council  may  compel  the  at- 


CITY   MANAGER   STATUTES  179 

tendance  of  all  heads  of  administrative  departments, 
and  shall  exercise  the  functions  designated  to  the 
Board  of  Estimate  and  Apportionment  by  the 
charter. 

"(4)  The  city  council  may  provide  for  a  board 
of  audit,  or  a  special  auditor,  to  be  directly  sub- 
ject to  their  control,  and  independent  of  the  city 
manager.  Such  board  or  officer  shall  have  access 
to  all  vouchers  and  other  public  records  within  the 
several  administrative  departments  at  all  times  and 
shall  have  such  powers  consistent  with  the  law  as 
the  city  council  may  confer.  But  all  claims  arising 
from  injury  to  person  or  property  shall  be  audited 
and  disposed  of  by  the  city  council. 

"(5)  The  city  council  shall  have  power  to  vali- 
date any  lawful  act  performed  by  any  administra- 
tive officer  of  the  city  without  its  previous  author- 
ity. 

"(6)  In  cities  which  are  independent  highway 
districts  the  city  council  shall  be  ex-officio  commis- 
sioners of  highways. 

"Sec.  39.  Agents  of  the  State  Government. 
Whenever  the  city  council  shall,  in  pursuance  of 
the  provisions  of  this  act,  assume  the  functions  of 
boards  which  are  essentially  the  local  agents  of  the 
state  administration,  they  shall  be  amenable  to  the 
central  administrative  officer  or  body  to  the  full 


180  THE   CITY   MANAGER 

extent  of  the  powers  granted  and  the  duties  im- 
posed by  the  operation  of  this  act. 

"Sec.  40.  Effect  of  Enumeration.  The  enumer- 
ation of  any  power  or  powers  herein  granted  the 
city  council  shall  not  be  construed  so  as  to  exclude 
any  others  which  may  be  granted  by  any  other  law 
applicable  to  the  city  and  not  inconsistent  with  this 
act.  The  exercise  of  powers  by  the  city  council 
shall  be  subject  to  the  provisions  of  Article  XL 

"ARTICLE  VI. 

"THE  MAYOR. 

"Sec.  41.  How  Chosen.  The  mayor  shall  be 
that  member  of  the  city  council,  who,  at  the  regular 
election  of  officers,  shall  have  received  the  highest 
number  of  votes.  In  case  two  candidates  receive 
the  same  number  of  votes,  one  of  them  shall  be 
chosen  mayor  by  the  remaining  three  members 
elected  to  the  city  council.  In  the  event  of  the 
mayor's  resignation  or  recall,  the  remaining  mem- 
bers of  the  city  council  shall  choose  his  successor 
for  the  unexpired  term,  from  their  own  number. 

"Sec.  42.  General  Powers  and  Duties.  The 
powers  and  duties  of  the  mayor  shall  be  such  as 
are  conferred  upon  him  by  this  act,  together  with 


CITY   MANAGER   STATUTES  181 

such  others  as  are  conferred  by  the  city  council  in 
pursuance  of  the  provisions  of  this  act,  and  no 
others. 

"Sec.  43.  President  of  City  Council.  He  shall 
be  president  of  the  city  council  and  shall  exercise 
all  the  powers  conferred  and  perform  all  the  duties 
imposed  upon  the  presiding  officer  of  the  common 
council  by  the  charter  which  are  not  inconsistent 
with  this  act.  He  shall  appoint  all  standing  and 
special  committees  of  the  city  council.  He  shall  be 
recognized  as  the  official  head  of  the  city  by  the 
courts  for  the  purpose  of  serving  civil  processes, 
by  the  Governor  for  the  purposes  of  the  military 
law,  and  for  all  ceremonial  purposes. 

"Sec.  44.  Police  and  Military  Powers.  His 
power  to  take  command  of  the  police  and  to  govern 
the  city  by  proclamation  during  times  of  great  pub- 
lic danger  shall  not  be  abridged  or  abrogated. 

"Sec.  45.  Designation  to  Judicial  Vacancies. 
During  the  disability  of  any  municipal  judge  or  jus- 
tice of  the  peace  the  mayor  shall  designate  some 
properly  qualified  person  to  act  during  such  dis- 
ability. 

"Sec.  46.  Magisterial  Powers.  He  shall  have 
power  to  administer  oaths  and  take  affidavits. 

"Sec.  47.  Commissioner  of  Charities  in  Certain 
Cities.     In  cities  where  the  mayor  is  authorized  by 


182  THE   CITY   MANAGER 

charter  to  sit  with  the  supervisors  as  a  commissioner 
of  charities,  he  shall  continue  so  to  act. 

"Sec.  48.  Removal  by  Governor.  The  power 
of  the  Governor  to  remove  the  mayor  shall  not  be 
abridged. 

"Sec.  49.  No  Judicial  Powers;  Mayor's  Courts 
Abolished.  The  mayor  shall  have  no  judicial  pow- 
er. The  mayor's  Court  of  Special  Sessions  and  all 
other  mayor's  courts  are  hereby  abolished.  The 
jurisdiction  of  the  same  shall  be  conferred  by  the 
city  council  upon  some  other  municipal  court. 

"Sec.  50.  Non-enumerated  Functions.  Such 
functions,  not  enumerated  in  this  act,  as  are  con- 
ferred upon  the  mayor  of  the  city  by  charter  or  by 
the  general  laws  of  the  state  shall  be  exercised  by 
the  city  manager  unless  some  other  provision  shall 
be  made  by  the  city  council. 

"Sec.  51.  Salary.  The  salary  of  the  mayor 
shall  be  twice  the  salary,  if  any,  received  by  any 
other  member  of  the  city  council. 

"Sec.  52.  Acting  Mayor.  During  the  disability 
of  the  mayor,  the  functions  of  his  office  shall  de- 
volve upon  some  member  of  the  city  council  desig- 
nated by  that  body,  who  shall  receive  during  such 
incumbency  a  pro  rata  of  the  excess  over  the  alder- 
man's salary  which  is  allowed  to  the  mayor  under 
this  act. 


CITY   MANAGER    STATUTES  183 

"ARTICLE  VII. 
"THE  CITY  MANAGER. 

"Sec.  53.  Administrative  Head  of  Government. 
There  shall  be  chosen  by  the  city  council  an  officer 
to  be  known  as  the  city  manager,  who  shall  be  the 
administrative  head  of   the  city  government. 

"Sec.  54.  Official  Oath  and  Bond.  Before  en- 
tering upon  the  duties  of  his  office  the  city  manager 
shall  take  the  official  oath  required  by  law  and  shall 
execute  a  bond  in  favor  of  the  city  for  the  faithful 
performance  of  his  duties  in  such  sum  as  shall  be 
determined  upon  by  the  city  council. 

"Sec.  55.  Tenure  of  Office.  The  tenure  of  the 
city  manager  shall  be  at  the  pleasure  of  the  city 
council. 

"Sec.  56.  Not  to  Be  Interested.  The  city  man- 
ager shall  not  be  personally  interested  in  any  con- 
tracts to  which  the  city  is  a  party,  for  supplying 
the  city  with  materials  of  any  kind. 

"Sec.  57.  Duties  :  General.  It  shall  be  the  duty 
of  the  city  manager  to  see  that  within  the  city  the 
laws  of  this  state  and  the  ordinances,  resolutions 
and  by-laws  of  the  city  council  shall  be  faithfully 
executed.  In  addition  to  such  functions  as  are 
enumerated  in  this  act  he  shall  exercise  all  other 


184  THE   CITY   MANAGER 

powers  and  perform  all  other  duties  conferred  and 
imposed  upon  mayors  of  cities,  unless  other  desig- 
nation shall  be  made  by  this  act  or  by  act  of  the 
city  council. 

"Sec.  58.  Recommendations  and  Reports.  It 
shall  be  his  duty  to  attend  all  meetings  of,  and  to 
recommend  to,  the  city  council,  from  time  to  time, 
such  measures  as  he  shall  deem  necessary  or  expe- 
dient for  it  to  adopt.  He  shall  prepare  business, 
and  draw  up  resolutions  and  ordinances  for  adop- 
tion by  the  city  council,  and  furnish  them  with  any 
necessary  information  respecting  any  of  the  depart- 
ments under  his  control. 

"He  shall,  at  such  times  as  the  city  council  shall 
so  require,  present  reports  from  the  several  de- 
partments, and  shall  draw  up  an  annual  report 
which  shall  consolidate  the  special  reports  of  the 
several  departments.  He  shall  be  a  member  of  the 
Board  of  Estimate  and  Apportionment  and  shall 
present  to  that  body,  annually,  an  itemized  estimate 
of  the  financial  needs  of  the  several  departments 
for  the  ensuing  year. 

"Sec.  59.  Appointments.  He  shall  appoint  per- 
sons to  fill  all  offices  for  which  no  other  mode  of 
appointment  is  provided.  And  no  such  appointment 
to  or  removal  from  such  office  shall  be  made  with- 
out his  consent. 


CITY   MANAGER    STATUTES  185 

"Sec.  60.  Relation  to  Department  Heads.  He 
shall  transmit  to  the  heads  of  the  several  depart- 
ments written  notice  of  all  acts  of  the  city  council 
relating  to  the  duties  of  their  departments,  and  he 
shall  make  designations  of  officers  to  perform  du- 
ties ordered  to  be  performed  by  the  city  council. 

"Sec.  61.  Signs  Certain  Documents.  He  shall 
sign  such  contracts,  licenses  and  other  public  docu- 
ments, on  behalf  of  the  city,  as  the  city  council  may 
authorize  and  require. 

"Sec.  62.  Access  to  Public  Records.  He  shall 
have  access  at  all  times  to  the  books,  vouchers  and 
papers  of  any  officer  or  employee  of  the  city  and 
shall  have  power  to  examine,  under  oath,  any  per- 
son connected  therewith.  It  shall  be  his  duty,  either 
in  person  or  by  the  aid  of  a  competent  expert,  to 
know  the  manner  in  which  the  accounts  of  the  city 
and  the  various  boards  are  kept. 

"Sec.  63.  Signs  Warrants  of  Arrest.  He  shall 
have  power  to  sign  warrants  of  arrest  and  to  cause 
arrests  for  infraction,  within  the  city,  of  the  laws 
of  the  state  and  ordinances  and  other  regulations 
of  the  city.  He  shall  have  general  power  to  admin- 
ister oaths  and  take  affidavits. 

"Sec.  64.  May  Revoke  Licenses.  He  shall  have 
power  to  revoke  licenses  pending  the  action  of  the 
city  council. 


1 86  THE   CITY   MANAGER 

"Sec.  65.  Office  Consolidated  with  City  Clerk's 
in  Certain  Cities.  In  cities  having  a  population  of 
less  than  twenty  thousand,  according  to  the  last  pre- 
ceding state  enumeration,  the  office  of  city  manager 
may  be  consolidated  with  that  of  city  clerk,  or  other 
officer  of  similar  functions. 

"Sec.  66.  Disability.  During  the  disability  of 
the  city  manager  the  city  council  shall  designate 
some  properly  qualified  person  to  execute  the  func- 
tions of  the  office. 

"ARTICLE  VIII. 

"[Sees.  67  to  74  contain  special  provisions  to 
obviate  possible  conflicts  of  the  act  with  provisions 
of  the  special  city  charters.] 

"ARTICLE  IX. 

"[Sees.  75  to  82  relate  to  certain  special  matters 
of  local  significance  in  regard  to  appointments.] 


"ARTICLE   X. 
"THE   DEPARTMENT   OF   EDUCATION. 

"[By  Sees.  83  to  94  the  board  of  education  is 
divested  of  its  corporate  character,  and,  so  far  as 


CITY   MANAGER    STATUTES  187 

conditions  permit,  made  a  department  of  the  gen- 
eral administration  of  the  city.  The  board  is  ap- 
pointed by  the  council.] 

"ARTICLE  XI. 

"THE  INITIATIVE  AND   REFERENDUM. 

"[The  provisions  of  this  article,  Sees.  95  to  99, 
are  adapted  from  the  charter  of  Berkeley,  Cali- 
fornia (  q.  v.).] 

"ARTICLE   XII 
"[Miscellaneous  provisions  (Sees.  100  to  106).] 

"B.    OHIO    STATUTE. 

[Laws  of  1 91 3,  p.  j6j,  ct  seq.  Applicable  to 
any  city  in  Ohio  by  referendum.] 

"ARTICLE  IV. 

"Sec.  8.  City  Manager.  The  council  shall  ap- 
point a  city  manager  who  shall  be  the  administra- 
tive head  of  the  municipal  government  under  the 
direction  and  supervision  of  the  council  and  who 
shall  hold  office  at  the  pleasure  of  the  council. 

"Sec.  9.    Duties  of  City  Manager.    The  duties  of 


1 88  THE   CITY   MANAGER 

the  city  manager  shall  be :  (a)  to  see  that  the  laws 
and  ordinances  are  faithfully  executed;  (b)  to  at- 
tend all  meetings  of  the  council  at  which  his  attend- 
ance may  be  required  by  that  body;  (c)  to  recom- 
mend for  adoption  to  the  council  such  measures  as 
he  may  deem  necessary  or  expedient;  (d)  to  ap- 
point all  officers  and  employees  in  the  classified  serv- 
ice of  the  municipality,  subject  to  the  provisions 
of  this  act,*  and  of  the  civil  service  law;  (e)  to  pre- 
pare and  submit  to  the  council  such  reports  as  may 
be  required  by  that  body,  or  as  he  may  deem  advisa- 
ble to  submit;  (f)  to  keep  the  council  fully  advised 
of  the  financial  condition  of  the  municipality  and  its 
future  needs;  (g)  to  prepare  and  submit  to  the 
council  a  tentative  budget  for  the  next  fiscal  year ; 
(h)  and  to  perform  such  other  duties  as  the  council 
may  determine  by  ordinance  or  resolution. 

"Sec.  10.  Salary  of  City  Manager.  The  city 
manager  shall  receive  such  salary  as  may  be  fixed 
by  the  council ;  and  before  entering  upon  the  duties 
of  this  office  he  shall  take  the  official  oath  required 
by  this  act  and  shall  execute  a  bond  in  favor  of 
the  municipality  for  the  faithful  performance  of 
his  duties  in  such  sum  as  may  be  fixed  by  the 
council." 

*  The  council  appoints  the  auditor,  clerk,  treasurer  and 
solicitor. 


CITY   MANAGER   STATUTES 


189 


"C.    VIRGINIA  STATUTE. 

[An  act  of  the  legislature,  approved  Mar.  13, 
1914,  applicable  to  every  city  having  less  than  100,- 
000  inhabitants,  when  adopted  at  a  special  election 
called  upon  petition  of  25  per  cent,  of  the  electors 
qualified  to  vote  at  the  last  preceding  municipal 
election.] 

"I.  General  Councilmanic  Plan. 


'Governing  Body: 
"Title: 

"Term  of  Office. 
"Number: 


*  [Sec  footnote  on  p.  193.] 


Council. 

Four  years. 

Population  less  than  10,- 
000  —  three  *  or  five 
elected  at  large. 

Population  10,000  to  20,- 
000  —  three,  five  or 
seven  elected  at  large 
or  by  wards.* 

Population  20,000  to  30,- 
000 — three,  five,  seven 
or  nine,  to  be  elected  at 
large  or  by  wards. 

Population  over  30,000 — 
three,*  five,  seven,  nine 
or  eleven,  to  be  elected 
at  large  or  by  wards. 


i9o  THE   CITY   MANAGER 

"Any  city  operating  under  this  plan,  or  any  town, 
may  appoint  any  person  who  is  a  qualified  resident 
of  such  city  or  town,  to  be  known  as  'city  manager' 
and  to  perform  such  duties  as  the  council  may  re- 
quire of  him  and  for  such  compensation  as  they 
may  allow.  Such  officer  is  subject  to  removal  by 
the  council  at  any  time. 

"II.  Modified  Commission  Plan. 

"Governing  Body: 

"Title:  Council. 

"Term  of  Office:    Four  years. 
"Number:  Three,*  or  five,  elected  at 

large. 

"Appointments: 

"Manner:  By  the  council,  subject  to 

removal  by  that  body 
at  any  time  except  as 
especially  provided  by 
law. 

"III.  City  Manager  Plan. 

"Governing  Body: 

"Number:  Population  less  than  10,- 

ooo — three  *     or    five, 
elected  at  large. 
Population  over  10,000 — 

*  [See  footnote  on  p.  193.] 


CITY   MANAGER    STATUTES  191 

five  *  to  eleven. 
"Term  of  Office:    Four  years. 

"City  Manager: 

"Administrative  and  executive  powers.  The  ad- 
ministrative and  executive  powers  of  the  city,  in- 
cluding the  power  of  appointment  of  officers  and 
employees,  are  vested  in  an  official  to  be  known  as 
the  city  manager,  who  shall  be  appointed  by  the 
council  at  its  first  meeting,  or  as  soon  thereafter  as 
practicable,  and  hold  office  during  the  pleasure  of 
the  council;  he  shall  receive  such  compensation  as 
shall  be  fixed  by  the  council  by  ordinance. 

"General  Duties  of  the  City  Manager. 

"1.  The  city  manager  shall  see  that  within  the 
city  the  laws,  ordinances,  resolutions  and  by-laws  of 
the  council  are  faithfully  executed. 

"2.  Attend  all  meetings  of  the  council,  and  rec- 
ommend for  adoption  such  measures  as  he  shall 
deem  expedient. 

"3.  Make  reports  to  the  council  from  time  to  time 
upon  the  affairs  of  the  city;  keep  the  council  fully 
advised  of  the  city's  financial  condition,  and  its 
future  financial  needs. 

"4.  Prepare  and  submit  to  the  council  a  tenta- 
tive budget  for  the  next  fiscal  year. 

"5.  He  shall  perform  such  other  duties  as  may  be 

*  [See  footnote  on  p.  193.] 


192  THE   CITY   MANAGER 

prescribed  by  the  council  not  in  conflict  with  the 
foregoing,  and  shall  be  bonded  as  the  council  may- 
deem  necessary. 

(See  also  "Appointments.")' 
" Appointments: 

"Manner:  By  the  city  manager,  sub- 

ject to  removal  by  him 
(except    those    in    the 
financial,  legal  and  ju- 
dicial departments  and 
the  clerical  and  other 
attendants  of  the  coun- 
cil). 
"Under  this  plan  the  council  selects  one  of  its 
own  number  to  preside  over  its  meetings,  who  be- 
comes, thereupon,  cx-ofhcio  mayor. 

"PROVISIONS   APPLICABLE   TO   EACH   PLAN. 

"Elections'- 

"The  general  state  law  providing  for  partisan 
elections  only,  applies. 

"Initiative: 

"No  provisions. 

"Referendum: 
"No  provisions. 


CITY   MANAGER    STATUTES  193 

"Recall: 

"No  provisions." 

*  The  adoption  of  a  particular  plan  of  government  is 
coupled  on  the  ballot  with  propositions  fixing  the  number 
and  compensation  of  councilmen  for  the  particular  city 
and,  in  some  cases,  determining  whether  election  shall  be 
by  wards  or  at  large. 

"Under  this  plan,  the  council  selects  one  of  its  own  num- 
ber to  preside  over  its  meetings,  with  the  title  of  mayor, 
and  assigns  each  one  of  its  members  to  particular  admin- 
istrative duties." 


CHAPTER   XII 
RESULTS 

I  believe  that  one  of  the  greatest  moral  services,  even 
if  one  of  the  most  unpleasant  duties,  of  the  public- 
spirited  citizen  is  to  watch  continuously  the  conduct  of 
the  public  officials  who  represent  him. 

Henry  Crosby  Emery 

It  is  a  majestic  outlook  to  view  the  accomplish- 
ments of  municipal  revolutions  of  the  past  years.  A 
certain  poetic  fitness  of  things  seems  to  pervade 
these  concentrated  efforts,  courageous,  intelligent, 
humanitarian  efforts,  to  make  city  life  a  thing  of 
order  and  system  and  clean-minded  business — an 
evidence  even  of  that  sterner  phase  of  a  practical 
religion  of  true  citizenship;  a  religion  which  ele- 
vates industrious  attention  to  the  duties  of  a  citizen 
as  one  of  the  primal  duties  of  an  urban  resident. 

Fine  fruits  of  this  new  religion  have  been  born 
in  this  forward  movement  appearing  in  the  guise 
of  the  city  manager  plan.  From  the  very  nature 
of  things,  it  is  the  report  of  progress  of  a  thing 
newly  born.    The  facts  should  be  left  to  speak  for 

194 


RESULTS  195 

themselves;  but  the  prospects  they  predict  are  rare 
visions  of  a  new  order  about  to  come  into  the  full- 
ness of  its  own  excellent  state. 

When  the  new  commission  under  the  city  man- 
ager charter  entered  upon  its  duties  in  Springfield, 
Ohio,  it  was  faced  by  a  floating  indebtedness  of 
$123,000.  This  had  been  accumulating  for  years; 
it  was  heritage  of  past  evils.  After  six  months 
of  progressive  work  it  is  definitely  expected  to  re- 
duce this  to  $55,000  or  $60,000  at  the  end  of  the 
first  year  and  to  totally  eliminate  the  entire  floating 
indebtedness  by  the  end  of  the  second  year.  And  as 
a  means  to  do  all  this,  the  first  competent  step  was 
the  employment  of  highly  expert  accountants  of  a 
famous  firm  to  install  a  model  accounting  system, 
entirely  uniform  and  unified,  placing  the  city  upon 
the  bedrock  basis  of  assets  and  resources.  The 
cost  of  the  installation  of  such  a  system  is  $5,000, 
but  the  expense  will  be  entirely  saved  and  more  by 
the  results  obtained  on  the  investigation  and  the 
installation  of  the  system.  For  instance,  the  water 
department  had  been  reputed  to  be  a  fabled  gold 
mine  returning  in  profit  apparently  $60,000  to 
$75,000  to  the  city  yearly.  Under  the  accounting 
system  just  installed  a  rude  blow  was  dealt  to  this 
bonanza.  The  ridiculous  situation  was  discovered 
that  the  amateur  financiers  of  prior  administrations 


196  THE   CITY   MANAGER 

had  neglected  to  charge  depreciation,  interest  on  in- 
vestment and  a  number  of  other  vital  items;  the 
actual  profits  were  found  to  be  of  another  degree 
entirely  than  those  which  had  been  accredited  to  the 
department  for  years. 

From  now  on  public  buildings,  schools  and  other 
places  of  similar  character  will  have  to  pay  for  the 
water  furnished  to  them;  they  will  no  longer  be 
i    allowed  to  act  the  parasite  upon  another  department. 

By  a  system  of  economy  and  the  application  of  a 
business  organization  to  the  department,  the  proper 
charging  of  water  rentals,  as  well  as  other  means, 
will  restore  somewhat  this  decrease  in  the  profits  of 
the  water  department.  But  the  instance  tellingly 
illustrates  the  fallacies  upon  which  the  old  govern- 
ment was  based.  Consider  the  character  of  business 
judgment  which  ran  a  $45,000,000  corporation  and 
permitted  the  condition  of  things  set  forth  above! 

One  of  the  first  steps  taken  in  Springfield  was  a 
reduction  of  the  police  and  fire  department  force 
because  there  was  no  money  with  which  to  pay 
them,  and  the  services  in  some  instances  were  not 
vital.  For  instance,  a  fire  engine  house  also  was 
closed  and  the  members  of  the  companies  retired 
from  the  force,  but  placed  upon  the  civil  service  list 
at  the  head  so  that  in  case  of  vacancies  they  could 
be  reinstated  first  of  all. 


RESULTS  197 

A  radical  change  was  made  in  the  amount  of 
labor  and  the  character  of  labor  on  the  part  of  the 
city  employees.  For  the  first  time  in  the  history 
of  a  town  the  hours  of  seven  o'clock  a.  m.  to  twelve 
o'clock  noon  and  from  one  o'clock  p.  m.  until  five 
o'clock  p.  m.  were  rigidly  observed.  And  during 
those  hours  the  officials  attended  to  the  city's  busi- 
ness and  they  did  not  occupy  their  time  with  a  great 
deal  of  political  discussion,  "wire-pulling"  or  other 
means  of  wasting  the  hours  for  which  someone  else 
pays.  Merit  alone  determines  the  retention  of  an 
official  and  every  official  in  the  city  government  has 
been  and  is  being  measured  according  to  that  stand- 
ard. Some  have  not  been  able  to  measure  up  to  the 
ordinary  business  requirements  and  have  been  asked 
to  secure  other  employment.  This  process  cannot 
be  over  within  the  first  six  months  nor  perhaps 
will  ever  be  over.  A  radical  change  was  made  in 
one  instance:  the  fire  chief  had  not  been  requested 
in  former  days  to  stay  on  duty  in  the  Central  Engine 
House  continually,  but  now  he  lives  there  and  makes 
that  his  headquarters.  Rapid  strides  are  being 
made  in  the  motorizing  of  the  entire  fire  depart- 
ment, which  will  effect  a  vast  economy  in  current 
expense. 

Experts  alone  are  employed.  The  auditor  is  a 
former  state  examiner  and  the  auditing  department 


198  THE   CITY   MANAGER 

is  conducted  in  a  highly  commendable  manner,  pre- 
venting a  practice  which  is  said  to  have  been  quite 
frequent  in  the  old  administration,  of  paying  bills 
more  than  once. 

The  streets  are  now  repaired  and  cleaned  under 
the  direct  supervision  of  the  chief  engineer.  He 
has  in  constant  mind  the  very  best  permanent,  scien- 
tific repairs,  and  with  the  aid  of  a  street  cleaning 
department,  which  has  been  entirely  motorized,  he 
can  keep  the  streets  in  excellent  condition.  The 
motor  truck  is  handled  and  loaded  by  three  men 
and  when  it  starts  out  along  a  street  to  clean  it  the 
vehicle  never  stops,  but  is  loaded  while  being  moved. 
The  saving  in  this  item  will  pay  for  the  motorizing 
feature  in  a  year.  The  repair  of  the  streets  is  done 
by  the  city  now ;  and  the  cuts,  fills,  and  other  changes 
are  so  performed  by  the  city.  If  there  is  any  de- 
fective street,  a  telephone  message  to  the  city  man- 
ager will  secure  immediate  action  in  the  following 
manner,  which  is  in  vital  contrast  to  the  old  method 
of  delay.  Upon  receipt  of  the  telephone  message, 
the  city  manager  will  send  a  written  order  to  the 
proper  department  to  see  that  the  matter  is  attended 
to,  and  this  job  must  be  reported  back  to  him  when 
done.  The  work  is  not  performed  as  soon  as  the 
official  can  get  ready,  upon  his  own  statement,  but 
is  performed  at  once.     If  it  is  a  matter  demanding 


RESULTS  199 

the  promptest  attention,  the  order  is  telephoned  to 
the  department  by  the  city  manager  and  the 
written  request  follows. 

The  secretary  to  the  city  manager,  a  trained  news- 
paper man,  has  been  acting  as  purchasing  agent,  and 
to  him  come  the  questions  of  that  position;  it  is 
estimated  that  he  will  save  the  city  $8,000  during 
the  first  year. 

The  health  department  has  been  reformed.  The 
health  director  and  his  assistant  are  both  doctors  of 
excellent  training  who  keep  the  same  office  hours  of 
seven  o'clock  to  five  o'clock  as  the  rest  of  the  city 
officials,  and  in  addition  are  subject  to  call  for  night 
work  in  emergency  cases.  The  dairy  and  food  com- 
missioners, the  sanitary  marshal,  the  pathologist, 
are  all  abolished.  The  position  of  the  pathologist  is 
now  occupied  by  the  health  director  or  his  assistant 
who  have  had  a  laboratory  fitted  up  for  them. 

The  new  plan  is  followed  in  the  proper  financing 
of  the  bond  issues  in  issuing  of  bonds  to  cover  the 
actual  cost  of  improvements  rather  than  the  esti- 
mated cost.  The  old  plan  of  issuing  on  estimated 
cost  and  then  having  to  rebate  when  actual  cost  was 
found  out,  involved  a  loss,  practically,  of  the  in- 
terest on  the  excess  of  bonds,  and  the  reforms  in 
this  particular  will  save  $50,000  to  $75,000.  Along 
the  line  of  bond  issues  for  street  improvements,  it 


200  THE   CITY   MANAGER 

is  interesting  to  note  that  now  no  underground 
street  improvements  will  be  permitted  after  a  street 
has  once  been  laid. 

Fifty  thousand  dollars  will  be  saved  this  year  in 
running  expenses  approximately,  and  the  tax  rate 
will  be  reduced  somewhat  despite  the  increased 
scope  of  activities. 

The  city  manager  requires  a  report  from  the 
manager  of  every  department  each  day.  This  re- 
port includes  many  items,  among  them,  the  number 
of  men  at  work,  hours  of  labor,  the  amount  of 
wages,  and  other  necessary  items  to  show  the  cost 
of  what  they  are  producing.  Every  two  weeks  all 
heads  of  departments  have  a  conference  with  the 
city  manager. 

A  new  gas  franchise  was  entered  into  for  a  ten- 
year  period  which,  it  is  estimated,  will  save  the  city 
$75,000. 

In  Dayton,  Ohio,  of  course,  the  problems  to  be 
met  were  different,  and  the  scope  of  the  reform 
was  much  vaster.  The  following  report  of  Mr. 
Waite,  city  manager  of  Dayton,  as  published  by 
The  Dayton  Bureau  of  Research,  is  given  entirely 
as  a  statement  of  what  the  new  administration  con- 
siders it  has  become  through  the  city  manager  plan. 
This  report  covers  the  period  of  the  first  six  months 
of  the  operation  of  the  plan. 


RESULTS  201 

Office  of  the  Manager 

"Staff  Conferences. — Regular  conferences  with 
the  heads  of  departments  are  held,  where  all  im- 
portant matters  are  considered  and  departmental  co- 
operation has  been  developed,  and  the  programs  and 
activities  of  each  department  are  discussed  and 
planned. 

"Expenditures  Limited  by  Income. — In  planning 
the  expenditures  of  the  year,  appropriations  were 
limited  to  estimated  revenues,  and  expenditures  are 
being  kept  within  the  cash  receipts.  The  old  deficit 
of  $125,000  will  be  reduced  rather  than  added  to. 
The  issuance  of  bonds  to  meet  current  expenses  has 
not  been  resorted  to. 

"An  Eight-hour  Day. — Payrolls  are  not  now 
passed  unless  a  time  sheet  has  been  kept  showing 
the  number  of  hours  worked  by  each  employee.  In 
this  connection  the  number  of  hours  has  been  re- 
duced from  10  to  8,  at  the  same  pay,  and  office 
employees  are  now  required  to  work  a  full  eight 
hours. 

"Grade  Elimination. — Five  thousand  dollars  has 
been  appropriated  with  which  to  prepare  grade 
elimination  plans,  providing  those  now  being  se- 
cured by  the  railroads  are  unsatisfactory.  This  con- 
templates the  elevation  of  the  joint  tracks  through 


202  THE   CITY   MANAGER 

the  center  of  the  city,  which  must  be  done  before 
the  other  crossings  can  be  considered. 

"Building  Code. — Arranged  for  the  drafting  of 
an  entire  building  code  for  the  city  to  be  ready 
January  i,  1915,  and  without  cost  to  the  city. 

"Better  Street  Car  Service. — Secured  from  the 
railways,  switchmen  for  the  downtown  intersections 
during  rush  hours.  The  companies  are  also  con- 
sidering a  complete  re-routing  to  reduce  the  down- 
town congestion. 

"A  Civic  Plan  Board. — There  has  been  appointed 
a  Civic  Plan  Board  to  investigate  the  subject  of  city 
planning  and  report  a  program  of  city  development, 
including  a  civic  center  for  the  location  of  public 
buildings. 

"Civic  Music. — Amateur  and  professional  musi- 
cians have  been  interested  in  securing  high-grade 
music  at  more  popular  prices.  As  a  result,  there  has 
been  arranged  a  high-class  symphony  program  for 
the  coming  winter,  and  half  of  the  seating  capacity 
has  been  sold  in  season  tickets. 

"Renaming  and  Renumbering  Streets. — A  com- 
mission has  been  appointed  to  recommend  a  plan 
for  renaming  and  renumbering  certain  streets. 

"Life-saving  Equipment. — Through  the  generos- 
ity of  a  citizen  life-saving  equipment  has  been  se- 
cured for  stations  along  the  river  and  one  fireman 


RESULTS  203 

sent  to  the  U.  S.  Life  Saving  Station  at  Cleveland 
to  study  rescue  and  resuscitation,  and  a  life-saving 
crew  has  been  organized  in  the  Division  of  Fire. 

"Crossing  Blockades. — Since  the  first  of  the  year, 
every  crossing  blockade  has  been  reported  to  the 
manager's  office,  and  a  report  of  the  cause  received 
from  the  railway.  A  gradual  reduction  in  delays  has 
resulted,  and  material  betterment  in  service  secured. 

"Civic  Workers'  League. — The  women  of  the 
city  were  interested  in  forming  such  an  organiza- 
tion to  aid  in  keeping  the  city  clean,  and  have  offered 
prizes  to  the  school  districts  showing  the  greatest 
improvement. 

"Traffic  Rules. — A  commission  has  been  ap- 
pointed to  revise  the  present  traffic  regulations  and 
present  to  the  Commission  a  code  which  will  meet 
the  requirements  of  a  growing  city. 

"Additional  Water. — Arrangements  have  been 
entered  into  with  a  firm  of  consulting  engineers  to 
present  plans  for  an  adequate  water  extension  for  a 
population  of  over  200,000. 

"Garbage  Removal. — Plans  have  been  secured 
for  a  disposal  plant  and  the  equipment  necessary  to 
care  for  all  garbage  and  other  refuse  of  the  city, 
considering  its  growth  for  twenty  years. 

"Sewers. — Both  the  storm  and  sanitary  sewer 
systems  are  inadequate  for  the  present  needs  of  the 


204  THE   CITY   MANAGER 

city  and  funds  have  been  voted  with  which  to  design 
a  complete  sewer  system,  and  all  sewers  laid  in 
the  future  will  be  in  accordance  with  this  plan. 

"The  Park  System. — Several  years  ago  Mr.  Olm- 
stead  prepared  a  comprehensive  park  plan  for  Day- 
ton. This  is  being  published  and  as  a  first  step  in 
carrying  out  the  scheme,  the  condemnation  of  the 
Orth,  Herman  Avenue  and  other  dumps  has  been 
recommended. 

"Petty  Offenders. — The  city  spends  thousands  of 
dollars  each  year  caring  for  petty  offenders,  drunk- 
ards, etc.,  many  of  them  'repeaters.'  Without  cost 
to  the  city,  an  investigation  is  being  made  which, 
it  is  hoped,  will  indicate  to  the  Welfare  Department 
the  most  humane  treatment  of  these  persons. 

DEPARTMENT   OF  LAW 

"Settlement  of  Complaints. — The  prosecutor's  of- 
fice is  disposing  of  all  cases  without  arrests  wher- 
ever possible.  Approximately  ioo  questions  con- 
cerning rents,  family  troubles,  petty  quarrels  are 
now  settled  weekly  without  court  publicity. 

"Loan  Shark  Campaign. — In  conjunction  with 
the  Legal  Aid  Bureau  several  successful  actions 
have  been  brought  against  loan  agents,  resulting  in 
wholesale  settlements  at  legal  rates  of  interest. 


RESULTS  205 

"Parole  of  Workhouse  Prisoners. — In  many 
worthy  cases  workhouse  prisoners  have  been  paroled 
and  placed  on  probation,  and  work  secured  for 
them.  There  is  need  for  further  development  of 
this  feature. 

"Mail  Order  Frauds. — The  prosecutor  cooperated 
with  other  public  officers  in  securing  evidence  of 
mail  order  fraud,  and  one  case  has  been  turned  over 
to  the  United  States'  authorities. 

"Home  Ride. — The  most  sweeping  decision  in 
favor  of  a  liberal  interpretation  of  the  home  rule 
amendment  was  secured  from  the  Supreme  Court 
in  the  decision  upholding  the  legality  of  local  civil 
service  laws. 

"General  Statement. — Operating  under  a  new 
charter  has  made  it  necessary  to  refer  to  the  Legal 
Department  all  new  activities  and  an  immense 
amount  of  work  has  been  performed  by  them  of 
value  not  only  to  the  city  in  general  but  affecting 
every  home  rule  municipality. 

DEPARTMENT    OF    PUBLIC    SERVICE 
Office  of  the  Director 

"A  Salary  Saving  of  $2,700. — A  reduction  in  the 
number  of  office  positions  in  the  department  has 
made  possible  a  saving  of  $2,700  for  the  year. 


206  THE   CITY   MANAGER 

"Expediting  Public  Work. — By  borrowing  on 
the  credit  of  uncollected  assessments  contractors  are 
being  paid  promptly,  and  work  rushed  with  a  re- 
sulting lower  cost.  Formerly  contractors  did  work 
and  were  paid  only  as  assessments  were  actually 
collected. 

"Permits  Simplified. — All  permits  are  now  issued 
from  one  office,  on  a  uniform  form,  and  the  amount 
collected  recorded  on  a  cash  register.  At  the  same 
time  the  machine  stamps  the  permit  as  legal,  and 
indicates  the  amount  paid. 

"Future  Refuse  Disposal. — A  report  has  been 
secured  from  the  sanitary  engineers,  Hering  and 
Gregory  of  New  York,  as  to  the  future  needs  of 
the  city  for  garbage  and  refuse  collection  and  dis- 
posal. 

Division  of  Engineering 

"Investigation  of  Sewers. — A  complete  topo- 
graphical study  of  the  city  has  been  planned  and  an 
investigation  of  the  condition  of  all  storm  and  sani- 
tary sewers.  The  plan  will  provide  for  future  de- 
velopment and  for  a  sewage  disposal  plant  to  be 
ready  if  such  is  ordered  by  the  State  Board  of 
Health.  All  future  sewer  construction  will  be  made 
to  this  plan. 

"Efficient    Street    Inspection.  —  The    inspection 


RESULTS  207 

service  on  contracts  has  been  completely  reorganized 
and  contractors  required  to  conform  rigidly  to  spec- 
ifications. The  result  will  be  a  better  grade  of 
street  pavement  in  the  future. 

"Island  Park  Bridge. — By  using  the  span  of  the 
Webster  Street  Bridge,  the  Island  Park  Bridge  was 
restored  at  the  low  cost  of  $4,000. 

"$12,000  Saved  on  Valley  Street  Bridge. — Per- 
mission was  secured  from  the  State  Board  of  Pub- 
lic Works  to  fill  and  pave  Valley  Street  across  the 
Miami  and  Erie  Canal  instead  of  building  a  lift 
bridge,  for  which  money  had  been  appropriated. 
Twelve  thousand  dollars  was  turned  back  into  the 
sinking  fund. 

Division  of  Streets 

"Street  Oiling. — Twenty  oiling  districts  for 
gravel  streets  have  been  created,  and  all  streets  were 
properly  prepared  and  cleaned  before  being  oiled. 

"Refuse  Collection. — The  collection  of  rubbish 
and  ashes  discontinued  last  year  has  been  resumed. 
The  streets  and  alleys  of  the  city  have  been  cleaned 
up  and  the  wagons  have  been  routed  so  that  monthly 
service  is  rendered  to  all  sections  of  the  city  alike. 

"Garbage  Collection. — It  has  been  arranged  to 
give  the   householders   regular   garbage   collection 


208  THE   CITY   MANAGER 

service  weekly.  That  adequate  service  may  be  sup- 
plied with  the  funds  available,  it  has  been  asked  that 
only  garbage  be  put  in  the  cans,  and  then  the  cans 
be  placed  of  easy  access  to  the  collectors. 

"Dead  Animals. — The  collection  of  dead  animals, 
which  formerly  cost  the  city  $1,700  a  year,  is  now 
being  done  free.  Complaints  should  be  telephoned 
to  Main  376. 

"Street  Flushing. — The  downtown  streets  are  be- 
ing flushed  once  a  week.  This  replaces  sprinkling 
and  will  be  assessed  on  the  abutting  property.  It 
is  hoped  that  the  results  will  next  year  justify  in- 
creasing the  flushing  to  all  paved  streets. 

"For  Cleaner  Streets. — In  addition  to  enlarging 
the  area  cleaned  by  'White  Wings,'  all  paved 
streets  are  being  swept  once  in  ten  days  by  large 
power  brooms.  Sixty  refuse  cans  have  been  placed 
on  the  main  thoroughfares,  and  a  clean-up  gang 
been  placed  on  the  downtown  streets  on  Saturday 
night  at  midnight,  in  order  that  the  streets  may  be 
clean  Sunday. 

"Street  Repairs. — Street  repairs  except  for  a  bal- 
ance of  $12,000  remaining  from  bonds  issued  be- 
fore 19 14,  are  now  being  made  from  current  reve- 
nues. Where  asphalt  streets  are  in  too  bad  a  con- 
dition they  are  being  repaired  with  tar  macadam  at 
a  reduced  cost. 


RESULTS  209 

"Service  Cuts. — All  plumbers'  cuts  except  for 
those  issued  prior  to  May  1  are  now  being  made  by 
this  division  and  the  cost  paid  by  the  person  having 
the  work  done.  This  insures  a  more  satisfactory 
restoration  of  the  street  surface. 

"Improvement  of  Dumps. — Have  leveled  off  and 
graded  Washington  Street  dump  and  part  of  Her- 
man Avenue  dump,  as  well  as  removed  a  large 
amount  of  brick,  stone  and  debris  from  the  vacant 
lots  used  as  gardens. 

Division  of  Water 

"Increased  Water  Pressure. — Since  June  4  a 
pressure  of  70  pounds  instead  of  the  normal  40  to 
60  pounds  has  been  maintained  during  all  periods 
of  heavy  consumption.  The  distribution  system, 
however,  is  so  inadequate  that  even  this  pressure 
will  not  supply  all  sections.  On  account  of  reserve 
for  fire  service  it  is  inadvisable  to  increase  beyond 
70  pounds. 

"Additional  Water  Supply. — A  temporary  sup- 
ply of  about  7,000,000  gallons  of  water  per  day  has 
been  made  available  at  Tate's  Hill.  This  has  pro- 
vided for  the  increased  demand  which  has  fre- 
quently exceeded  16,000,000  gallons  per  day.  Dur- 
ing fires  the  consumption  has  exceeded  the  rate  of 


210  THE   CITY   MANAGER 

30,000,000  gallons  per  day.  Work  on  the  perma- 
nent additional  supply  from  Tate's  Hill  is  being  ac- 
tively pushed  and  will  be  completed  this  fall. 

Improved  Pumping. — The  pumping  machinery 
has  been  completely  overhauled,  and  the  slippage 
greatly  reduced  in  two  of  the  three  units.  Two 
pumps  are  now  used  for  normal  service,  leaving 
the  third  for  peak  loads,  fires,  sprinkling  hours, 
wash  days,  etc.  The  city  is  paid  for  only  one-half 
of  the  water  pumped  as  shown  by  piston  displace- 
ment measurements.  This  waste  is  gradually  being 
reduced  by  reducing  slippage,  using  better  meters, 
eliminating  leaks,  etc. 

"Plans  for  Water  Improvements. — A  firm  of  con- 
sulting engineers  are  making  an  investigation  of  the 
entire  water  situation,  including  supply,  pumping 
and  distribution,  and  a  report  will  shortly  be  made 
with  recommendations  for  comprehensive  improve- 
ments. These  recommendations  will  consider  the 
demands  of  a  population  of  over  200,000. 

"Dayton  View  Supply. — High  pressure  pumps 
have  been  installed  at  Keowee  Street  station  so 
that  the  tank  in  Dayton  View  can  be  filled  with- 
out putting  on  fire  pressure.  The  territory  served 
by  the  tank  has  been  materially  extended,  secur- 
ing a  broader  and  more  equal  distribution  of 
benefits. 


RESULTS  211 

"Reduced  Coal  Consumption. — In  spite  of  the  in- 
creased quantity  of  water  pumped,  the  amount  of 
coal  burned  has  decreased.  This  is  due  to  the 
improvements  made  in  the  pumping  equipment  and 
to  the  fact  that  all  coal  delivered  is  tested  for  ash 
and  heating  value,  and  required  to  conform  to  con- 
tract specifications. 

"Meter  Repairs. — Meter  repairs  now  cost  over 
$12,000  a  year.  Records  have  been  installed  to 
show  the  repair  cost  of  each  meter  in  order  that 
the  most  durable  type  may  be  learned  and  purchased 
in  the  future. 

"A  Water  Works'  Superintendent. — A  superin- 
tendent has  been  appointed,  placing  the  whole  divi- 
sion under  one  executive  head  instead  of  three. 
The  position  of  cashier  and  office  manager  will  be 
abolished  August  1. 

Division  of  Public  Lands  and  Buildings 

"Municipal  Garage. — All  motor  repairs  and  ad- 
justments are  now  being  made  at  the  motor  garage 
at  a  saving  of  several  thousand  dollars  a  year. 
The  garage  also  acts  as  a  clearing  house,  securing 
greater  service  from  the  motor  equipment  of  the 
city.  All  city  cars  are  now  numbered  and  labeled. 
This  facilitates  the  keeping  of  cost  records  over  the 


212  THE   CITY   MANAGER 

operation  and  repair  of  each  car,  and  prevents  'joy 
riding'  after  hours. 

"Alterations  in  City  Building. — By  making  al- 
terations in  the  city  building,  quarters  were  pro- 
vided for  the  three  judges  of  the  municipal  court, 
the  city  manager,  purchasing  agent,  and  city  sealer. 
This  saves  a  once  proposed  expenditure  of  over 
$2,000  a  year  for  rent. 

"Savings  on  Heat. — By  heating  the  city  building 
with  purchased  steam  two  old  boilers  and  the  service 
of  two  engineers  were  dispensed  with,  effecting  a 
saving  of  $700  per  year. 


DEPARTMENT    OF    PUBLIC   WELFARE 
Division  of  Health 

"Full  Time  Health  Officer. — Provided  a  health 
officer  on  full  time,  the  first  in  the  history  of  the 
city.  Also  increased  the  force  of  full  time  food  and 
dairy  inspectors,  and  rearranged  the  work  so  as  to 
secure  larger  services  from  each  employee. 

"New  Quarters. — Removed  the  health  offices 
from  a  residence  to  a  modern  office  building,  paying 
approximately  the  same  rent,  and  giving  space  to 
two  other  departments  formerly  paying  rent. 

"Reorganization    of    Health    Work. — Reorgan- 


RESULTS  213 

ized  the  entire  division  of  health  and  installed  com- 
plete up-to-the-minute  records,  insuring  systematic 
work,  increased  efficiency,  and  adequate  control  of 
health  problems.  The  work  of  the  sanitary  police 
has  been  doubled,  and  the  force  reduced. 

"Public  Health  Nursing. — With  the  cooperation 
and  the  help  of  the  Visiting  Nurses'  Association 
and  the  Tuberculosis  Society,  brought  under  one 
management  and  single  control  all  public  health 
nursing. 

"Vacant  Property. — Ordinances  were  secured 
regulating  dumping  grounds  in  the  city,  and  the 
creation  of  insanitary,  disease-breeding  centers  by 
indiscriminate  dumping  is  being  prevented.  Owners 
are  also  required  to  cut  weeds  on  vacant  lots. 

"Insanitary  Conditions. — Enforced  the  laws  and 
ordinances  against  insanitary  dwellings  and  prem- 
ises, open  manure  boxes,  throwing  of  garbage  and 
vegetable  matter  in  alleys,  on  levees  and  vacant  lots, 
to  insure  better  health  conditions  in  the  city. 

"A  Lower  Baby  Death  Rate. — The  death  rate  for 
infants  for  June,  1914,  was  only  one-half  that  of 
any  June  for  three  years  previous.  This  low  death 
rate  has  been  secured  by  successfully  controlling 
threatened  epidemics  of  small-pox  and  diphtheria; 
by  an  anti-fly  campaign  conducted  through  every 
public  and  parochial  school;  and  by  the  inaugura- 


214  THE   CITY   MANAGER 

tion  of  baby  welfare  work.  Three  weekly  baby 
clinics  and  four  certified  milk  stations  have  been 
established  as  well  as  a  system'  of  postnatal  visit- 
ing to  mothers. 

"Free  Public  Clinics. — Free  eye,  ear  and  throat 
clinics  have  been  established  at  the  two  hospitals, 
and  a  tuberculosis  and  a  general  clinic  at  the  Wel- 
fare Department. 

Division  of  Parks 

"McCabcs  Park. — McCabe's  Park  has  been 
opened  to  the  public;  a  storm  sewer  built  for  less 
than  two-thirds  the  appropriation  and  a  satisfactory 
lighting  system  installed. 

"McKinley  Park. — A  running  track  has  been 
built  at  McKinley  Park;  filled  in  the  low  places 
and  made  a  baseball  diamond;  terraced  the  south- 
west corner  where  four  additional  tennis  courts 
have  been  built,  and  with  the  cooperation  of  Service 
Department,  are  changing  and  widening  River 
Street  near  Forest  Avenue,  making  it  safe  to  pedes- 
trians. 

"Island  Park. — Cleaned  up  Island  Park  (for- 
merly White  City)  from  the  ravages  of  the  flood 
of  last  year;  filled  up  the  unused  swimming  pool; 
built  a  wading  pool  for  small  children;  tore  away 


RESULTS  215 

the  old  moving-picture  theater  and  out  of  the  lum- 
ber built  two  toilet  rooms ;  dug  a  channel  with  work- 
house labor  connecting  the  Miami  River  with  the 
lagoon  at  the  east  side  of  the  park,  turning  the  park 
into  an  island ;  rehabilitated  and  repainted  all  build- 
ings on  the  ground;  rebuilt  the  roads  and  planted 
shrubbery  and  flowers;  put  in  three  bubbling  foun- 
tains; installed  an  additional  lighting  system  which 
lights  up  the  entire  island  and  the  beach,  making 
bathing  possible  in  the  evenings;  reinforced  the  pil- 
lars and  girders  of  the  dancing  pavilion,  making  it 
safe ;  resurfaced  the  dancing  floor,  and  installed  new 
awnings  on  the  building. 

"With  the  splendid  cooperation  of  the  Dayton 
Canoe  Club  opened  the  park  with  a  water  carnival 
which  was  witnessed  by  more  than  10,000  people. 
The  number  of  citizens  daily  enjoying  the  privi- 
leges of  this  park  are  proof  sufficient  of  the  needs 
of  public  amusement. 

"Community  Gardens. — Plowed  and  prepared  in 
cooperation  with  the  Dayton  Playgrounds  and  Gar- 
dens Association  six  community  gardens  on  which 
about  75  families  are  cultivating  vegetables ;  plowed 
and  prepared  22  experimental  gardens  for  the  culti- 
vation of  vegetables  by  hundreds  of  children  under 
the  direction  of  an  expert  gardener;  plowed  and 
prepared  339  vacant  lot  gardens  on  which  as  many 


216  THE   CITY   MANAGER 

families  are  raising  vegetables;  cleaned  up  and 
leveled  up  and  prepared  for  the  children,  a  dozen 
additional  playgrounds. 

Division  of  Recreation 

"Reorganization  of  Playground  Work. — Secured 
with  the  equal  assistance  of  the  Dayton  Playgrounds 
and  Gardens  Association  the  services  of  an  expert 
in  recreation  who  made  a  study  of  Dayton's  needs 
in  this  field.  At  the  suggestion  of  this  investigator 
and  with  the  cooperation  of  the  Public  School  Board 
and  the  Dayton  Playgrounds  and  Gardens  Associa- 
tion, an  advisory  board  of  recreation  was  created 
under  whose  management  all  the  public  recreation 
of  the  city  is  being  conducted,  unifying  the  work 
and  doubling  its  scope  by  more  than  one  hundred 
per  cent. 

"Number  of  Playgrounds  Doubled. — Play- 
grounds have  been  opened  in  every  section  of  the 
city,  with  daily  supervision  by  trained  play-super- 
visors, all  under  the  direction  of  the  superintendent 
of  recreation.  There  are  now  28  playgrounds  in 
Dayton  as  against  14  or  15  last  year,  the  largest 
number  ever  reached. 

"New  Equipment  Secured. — Extra  back-stops 
for  baseball  have  been  built  by  the  department  and 


RESULTS  217 

erected  on  vacant  lots  in  addition  to  those  erected 
on  regular  supervised  playgrounds,  making  about 
35  play-centers  for  children  and  young  people.  At 
Island  Park  new  floats  were  built ;  new  bathing  suits 
purchased;  ten  new  steel  boats  bought;  the  beach 
widened  and  sanded  for  bathers;  a  complete  life- 
saving  station  established  with  a  fast  gasoline 
launch,  thoroughly  equipped  for  saving  life  and 
manned  by  a  trained  life-saver,  from  8  :oo  a.  m.  to 
12  :oo  midnight.  New  tables  for  family  dinners 
were  built  and  100  park  benches  added.  Players' 
benches  have  been  placed  on  all  ball  grounds  and 
the  playing  fields  carefully  lined. 

"Play  Tournaments. — A  large  number  of  tourna- 
ments have  been  inaugurated  for  the  summer  which 
will  create  an  unusual  interest  in  all  sorts  of  play 
— such  as  marbles,  kite-flying,  baseball,  quoits, 
swimming,  athletic  contests,  as  well  as  doll  dress- 
ing, jackstones,  volley  ball  and  sand  models  for  the 
girls. 

Division  of  Correction 

"Workhouse  Overhauled. — The  workhouse  has 
been  completely  overhauled;  a  fresh  coat  of  paint 
and  whitewash  was  given  the  entire  interior ;  broken 
windows  replaced;  new  cots,  blankets  and  sheeting 


218  THE   CITY   MANAGER 

purchased ;  and  the  entire  kitchen  refitted  with  mod- 
ern equipment  to  replace  the  lard  cans,  etc.,  for- 
merly used  as  cooking  pots.  The  cistern  has  been 
thoroughly  cleaned,  disinfected  and  put  into  use, 
cutting  the  soap  cost  in  half.  All  prisoners  fitted 
out  with  new  clothing  and  many  with  new  shoes. 
New  fire  hose  has  been  bought  to  insure  increased 
fire  protection.  A  half-dozen  sewing  machines  have 
been  furnished  by  the  Davis  Company  for  the  use 
of  the  women,  who  are  making  towels  and  bed 
clothing,  and  repairing  men's  clothing. 

"The  Police  Station. — The  police  station  prison 
has  been  transferred  to  the  care  of  the  Division 
of  Corrections,  and  hot  rations  from  the  workhouse 
kitchen  furnished  prisoners  in  place  of  hard-tack 
and  bologna. 

"Cost  Records  Installed. — A  complete  system  of 
cost  and  service  records  to  show  the  daily  cost  of 
maintaining  prisoners  has  been  installed,  and  the 
office  procedure  brought  up  to  date. 

"Workhouse  Labor. — In  the  interest  of  health 
and  discipline,  prisoners  have  been  put  at  outside 
work  whenever  possible,  and  on  tasks  which  would 
otherwise  have  gone  undone.  Over  1,000  days' 
labor  has  been  done  at  the  following  places :  Island 
Park,  city  garden,  Tate's  Hill,  garbage  station, 
McCabe's  Park,  Bomberger  Park,  city  clean-up  day, 


RESULTS 


219 


Edgemont  playground.  Workhouse  men  also  at- 
tend daily  bridge  flower  boxes  on  Main  and  Warren 
Streets. 

"Municipal  Lodging  House  Established. — A  mu- 
nicipal lodging  house  was  temporarily  established 
through  the  courtesy  of  the  Burkhardt  Packing 
Company,  who  gave  free  use  of  a  building  on  Mar- 
ket Street.  The  superintendent  of  corrections  man- 
aged this  new  feature  of  relief  work,  taking  care  of 
1,852  lodgers.  These  lodgers  were  required  to  give 
a  half -day's  labor,  removing  snow,  leveling  dumps, 
etc.,  etc. 

"The  City  Garden. — A  city  garden  covering  two 
acres  has  been  planted  by  prisoners,  with  18  bushels 
of  potatoes,  2,000  cabbage  plants,  800  tomato  plants, 
besides  beans,  sweet  corn,  etc.  This  garden  has 
furnished  all  the  vegetables  for  the  workhouse. 

Division  of  Legal  Aid 

"Free  Legal  Advice. — A  Division  of  Legal  Aid 
was  established  in  the  Department  of  Welfare,  the 
second  of  its  kind  under  city  control  in  this  coun- 
try. It  has  been  unusually  effective  in  protecting 
the  weak,  and  in  four  months  of  operation  has  han- 
dled over  300  applications,  most  of  which  were 
claims  for  wages;  installment  difficulties  and  loan 


220  THE   CITY   MANAGER 

shark  extortions.  Over  two-thirds  of  these  were 
disposed  of  without  legal  action.  Any  person  capa- 
ble of  paying  is  referred  to  private  counsel.  The 
maintenance  of  the  division  will  cost  less  than  $625 
for  the  year. 

Division  of  Charities 

"City  Infirmary  Abolished. — The  city  infirmary 
was  abolished  February  1  and  all  outdoor  relief  put 
under  the  administration  of  the  Associated  Charities, 
thus  unifying  the  work,  increasing  its  efficiency  and 
avoiding  duplication  of  service.  This  field  is  being 
covered  at  less  than  one-half  the  cost  formerly  in- 
curred by  the  city  infirmary  as  conducted  with  a 
superintendent,  an  assistant,  clerk  and  janitor. 


DEPARTMENT  OF  PUBLIC  SAFETY 

"Investigation  of  Fire  and  Police  Service. — At  no 
cost  to  the  city  the  services  of  Mr.  Clement  Driscoll, 
ex-Deputy  Police  Commissioner  of  New  York,  were 
secured  to  study  safety  conditions.  This  report  is 
now  being  prepared  and  will  deal  particularly  with 
the  redistribution  of  fire  apparatus  for  added  pro- 
tection. 


RESULTS  221 

Division  of  Police 

"More  Police. — Seven  additional  patrolmen  were 
provided  for  in  the  budget  of  19 14,  and  were  ap- 
pointed early  in  the  year. 

"Women  Probation  Officers. — Two  women  pro- 
bation officers  have  been  provided  to  care  for  girls 
and  women  requiring  correctional  measures,  or  in 
need  of  personal  and  sympathetic  advice. 

"School  for  Police. — To  increase  the  effective- 
ness of  the  police  force  regular  meetings  are  being 
held  where  the  officers  are  schooled  in  police  meth- 
ods; departmental  cooperation;  ordinances  pertain- 
ing to  public  health,  service,  etc.  For  the  first  time 
in  the  department  weekly  practice  is  being  held  in 
target  shooting,  with  classification  according  to 
scores. 

"Uniforms  and  Drill. — Semi-military  uniforms 
have  been  secured  for  all  officers,  and  service  insig- 
nias  will  shortly  be  provided.  Police  drills  are  now 
being  held  to  improve  appearance  and  discipline. 

"Traffic  Rides. — Traffic  rules  have  been  amended 
and  a  rigid  enforcement  ordered. 

Division  of  Fire 

"Fire  Prevention. — An  inspection  has  been  made 
of  every  building  in  the  city  to  acquaint  at  least 


222  THE    CITY    MANAGER 

one  fireman  in  each  district  with  all  interior  con- 
structions. In  addition  fire  hazards  were  abated, 
and  where  orders  for  the  removal  of  material  or 
for  changes  in  building  conditions  were  given,  re- 
inspections  were  made. 

"Service  Tests. — With  a  view  to  decreasing  the 
time  necessary  to  get  into  active  service  at  fires, 
practice  tests  have  been  made  on  running  lines, 
hoisting  aerials,  ladder  mounting,  etc.  At  the  try- 
out  before  the  fire  underwriters,  prizes  for  the  most 
efficient  men  and  companies  were  awarded  by  the 
Dayton  Bicycle  Club. 

"Motor  Apparatus. — Since  it  has  been  thought 
impractical  to  completely  motorize  the  department  at 
once,  and  would  necessitate  selling  present  apparatus 
for  less  than  its  value,  only  half  of  the  money  avail- 
able for  motor  apparatus  will  be  used.  Fifty  thou- 
sand dollars  has  been  returned  to  the  sinking  fund." 

This  record  of  accomplishments  is  fraught  with  a 
great  hope — the  hope  of  rejuvenation  of  American 
municipal  governments  and  the  elevation  of  their 
administration  to  a  unique  place.  The  work  is  nec- 
essarily slow,  laborious,  and  one  calling  for  great 
tact  and  business  judgment ;  that  the  administrators 
are  displaying  these  qualities  the  achievements 
enumerated  heretofore  are  ample  testimonials. 


CHAPTER    XIII 
VARIOUS  POINTS  OF  VIEW 

Where  there   is  no  counsel,   purposes  are  disappointed; 
But  in  the  multitude  of  counsellors  they  are  established. 

A  Proverb 

The  following  report  is  an  interesting  verdict  ren- 
dered by  a  jury  of  men  whose  personnel  guarantees 
its  thoroughness  and  impartiality.  The  discussion 
is  as  follows: 


"SUPPLEMENTARY   REPORT. 

SUBMITTED   AT   THE   TORONTO   MEETING   OF 

THE  NATIONAL  MUNICIPAL  LEAGUE, 

NOVEMBER,    1913. 

"Instead  of  3,894,173  as  in  191 1,  commission 
government  now  rules  a  population  of  7,086,225 
and  the  number  of  towns  and  cities  under  this  form 
has  increased  from  93  to  300. 

"The  Des  Moines  charter  is  still  the  standard. 

"Nine  cities  have  followed  the  Grand  Junction 
(Colo.)   variation  which  provides  the  preferential 

223 


224  THE   CITY   MANAGER 

ballot.  The  device  has  proven  workable  and  eco- 
nomical and  the  extension  of  its  use  deserves  en- 
couragement. 

"The  recent  city  manager  variation,  hereinafter 
described,  embodies  the  first  significant  change  in 
structure. 

"One  much  mooted  question  has  always  been 
whether  commissioners  should  be  elected  for  specific 
posts  (as  in  Lynn,  Mass.)  or  on  a  general  ticket 
with  power  to  divide  the  departments  among  them- 
selves after  election  (as  in  Galveston  and  Des 
Moines).  The  tendency  of  charter  makers  since 
191 1  is  toward  the  Lynn  system.  The  Kansas  law 
has  been  amended  after  a  trial  of  the  Des  Moines 
plan  and  the  Lynn  plan  substituted. 

"The  argument  for  the  original  general  ticket 
plan  is  based  on  the  grounds  that  the  people  will  in 
either  case  elect  on  issues  of  representation  rather 
than  on  issues  of  the  technical  fitness  of  candidates, 
and  that  in  such  case  the  commission  by  intensive 
close-hand  investigation  of  the  experience  and  abil- 
ity of  its  members  can  make  best  use  of  the  material 
available.  Moreover,  election  to  specific  office  tends 
to  create  five  city  governments  instead  of  one,  di- 
minishes the  influence  and  control  of  the  commis- 
sron  over  its  individual  members  and  thus  interferes 
with  the  'unification  of  powers.' 


VARIOUS   POINTS    OF   VIEW  225 

"Advocates  of  the  'specific-office'  plan  point  out 
that  candidates  are  entitled  to  know  what  their  po- 
sitions will  be  in  the  government  and  the  voters,  too, 
are  entitled  to  know  what  department  a  given  candi- 
date, if  successful,  will  direct.  A  candidate  may 
not  desire  to  run  unless  a  certain  department  is  to 
be  his  and  the  voter  may  willingly  vote  for  a  man 
as  candidate  for  one  department  but  not  for  another 
department. 

"A  majority  of  your  committee  believes  that 
neither  solution  is  as  sound  as  that  offered  by  the 
commission  manager  plan  in  which  the  whole  ques- 
tion disappears  (see  '6'  below). 

"The  Commission  Manager  Variation 

"Definition  of  the  commission  manager  plan. — A 
single  elective  board  (commission)  representative, 
supervisory  and  legislative  in  function,  the  members 
giving  only  part  time  to  municipal  work  and  receiv- 
ing nominal  salaries  or  none.  An  appointive  chief 
executive  (city  manager)  hired  by  the  board  from 
anywhere  in  the  country  and  holding  office  at  the 
pleasure  of  the  board.  The  manager  appoints  and 
controls  the  remaining  city  employees,  subject  to 
adequate  civil  service  provisions. 

"History. — The  first  commission  manager  char- 


226  THE   CITY   MANAGER 

ter  was  presented  to  the  legislature  of  New  York 
in  191 1  by  the  Lockport  Board  of  Trade  and  widely 
commented  upon  as  'the  Lockport  plan.'  It  failed 
of  passage  in  the  Legislature. 

"In  1912  it  was  adopted  by  the  South  Carolina 
Legislature  in  a  special  act  for  the  city  of  Sumter 
(population,  8,109),  and  subsequently  adopted  by 
that  city,  going  into  effect  January  1,  19 13,  and 
thereafter  known  as  the  Sumter  plan. 

"In  1 91 3  it  was  adopted  by  Hickory,  N.  C.  (pop- 
ulation, 3,176)  ;  and  Morganton,  N.  C.  (popula- 
tion, 2,712);  Dayton,  Ohio  (population,  116,577); 
Springfield,  Ohio  (population,  46,921) ;  La  Grande, 
Ore.  (population,  4,843)  ;  Phoenix,  Ariz,  (popula- 
tion, 11,134);  Morris,  Minn,  (population,  1,885). 
Adopted  as  one  of  three  plans  in  a  general  optional 
law  by  the  Ohio  Legislature,  applicable  to  any  city. 

"It  was  also  submitted,  unsuccessfully,  in  Elyria 
and  Youngstown,  Ohio. 

"The  Lockport  draft  remains  at  present  the 
model  and  the  Springfield  charter  is  the  best  thus 
far  put  into  effect. 

"Comments. — The  swift  development  of  popu- 
larity for  the  city  manager  idea  insures  a  wide  and 
thorough  trial  of  the  plan  and  its  rapid  spread  may 
be  confidently  predicted. 

"This    variation    has    both   of    the    great   basic 


VARIOUS   POINTS    OF   VIEW  227 

merits  which  our  earlier  report  ascribed  to  the  orig- 
inal commission  plan,  namely,  the  'unification  of 
powers'  and  'the  short  ballot.' 

"At  this  point  the  committee  divides. 

"Majority  Report 

"By  Charles  A.  Beard,  Clinton  Rogers  Woodruff, 
William  Bennett  Munro  and  Richard  S.  Childs. 

"The  city  manager  feature  is  a  valuable  addi- 
tion to  the  commission  plan,  and  we  recommend 
to  charter  makers  serious  consideration  of  the  in- 
clusion of  this  feature  in  new  commission  govern- 
ment charters.     Its  advantages  are : 

"1.  It  creates  a  single-headed  administrative 
establishment  instead  of  the  five  separate  adminis- 
trative establishments  seen  in  the  Des  Moines  plan. 
This  administrative  unity  makes  for  harmony  be- 
tween municipal  departments,  since  all  are  subject  to 
a  common  head. 

"2.  The  commission  manager  plan  permits  ex- 
pertness  in  administration  at  the  point  where  it  is 
most  valuable,  namely,  at  the  head. 

"3.  It  permits   comparative   permanence   in   the 
office  of  the  chief  executive,  whereas  in  all  plans  in- 
volving elective  executives,  long  tenures  are  rare, 
"a.  This  permanence  tends  to  rid  us  of  ama- 


228  THE   CITY   MANAGER 

teur  and  transient  executives  and  to  substitute 
experienced  experts. 

"b.  This  permanence  gives  to  the  administra- 
tive establishment  the  superior  stability  and  con- 
tinuity of  personnel  and  policies  which  is  a  nec- 
essary precedent  to  solid  and  enduring  adminis- 
trative reforms. 

"c.  This  permanence  makes  more  feasible  the 
consideration  and  carrying  out  of  far-sighted 
projects  extending  over  long  terms  of  years. 

"d.  This  permanence  makes  it  worth  while  for 
the  executives  to  educate  themselves  seriously  in 
municipal  affairs,  in  the  assurance  that  such  edu- 
cation will  be  useful  over  a  long  period  and  in 
more  than  one  city. 

"4.  The  commission  manager  plan  permits  the 
chief  executives  to  migrate  from  city  to  city,  inas- 
much as  the  city  manager  is  not  to  be  necessarily 
a  resident  of  the  city  at  the  time  of  his  appointment, 
and  thus  an  experienced  man  can  be  summoned  at 
advanced  salary  from  a  similar  post  in  another 
city. 

"a.  This  exchangeability  opens  up  a  splendid 
new  profession,  that  of  'city  managership.' 

"b.  This  exchangeability  provides  an  ideal  ve- 
hicle for  the  interchange  of  experience  among 
the  cities. 


VARIOUS   POINTS    OF   VIEW  229 

"5.  The  commission  manager  plan,  while  giving 
a  single-headed  administration,  abolishes  the  one- 
man  power  seen  in  the  old  mayor-and-council  plan. 
The  manager  has  no  independence  and  the  city 
need  not  surfer  from  his  personal  whims  or  preju- 
dices, since  he  is  subject  to  instant  correction,  or 
even  discharge,  by  the  commission.  Likewise,  in 
the  commission,  each  member's  individual  whims  or 
prejudices  are  safely  submerged  and  averaged  in  the 
combined  judgment  of  the  whole  commission,  since 
no  member  exerts  any  authority  in  the  municipal 
government  save  as  one  voting  member  of  the  com- 
mission. 

"a.  This  abolition  of  one-man  power  makes 
safer  the  free-handed  extension  of  municipal 
powers  and  operations  unhampered  by  checks 
and  balances  and  red  tape. 

"b.  More  discretion  can  be  left  to  administra- 
tive officers  to  establish  rulings  as  they  go  along, 
since  they  are  subject  to  continuous  control  and 
the  ultimate  appeal  of  dissatisfied  citizens  is  to 
the  fairness  and  intelligence  of  a  group  (the 
commission)  rather  than  to  a  single  and  possi- 
bly opinionated  man  (an  elective  mayor).  In- 
versely, laws  and  ordinances  can  be  simpler,  thus 
reducing  the  field  of  legal  interpretation  and 
bringing  municipal  business  nearer  to  the  sim- 


230  THE   CITY   MANAGER 

plicity,    flexibility    and    straightforwardness    of 
private  business. 

"6.  The  commission  manager  plan  abandons  all 
attempts  to  choose  administrators  by  popular  elec- 
tion.   This  is  desirable  because: 

"a.  It  is  as  difficult  for  the  people  to  gauge 
executive  and  administrative  ability  in  candi- 
dates as  to  estimate  the  professional  worth  of 
engineers  or  attorneys.  As  stated  under  No.  13 
in  our  191 1  report,  such  tasks  are  not  properly 
popular  functions. 

"b.  By  removing  all  requirements  of  technical 
or  administrative  ability  in  elective  officers,  it 
broadens  the  field  of  popular  choice  and  leaves 
the  people  free  to  follow  their  instinct  which  is 
to  choose  candidates  primarily  with  reference  to 
their  representative  character  only.  Laboring 
men,  for  instance,  can  then  freely  elect  their  own 
men  to  the  commission,  and  there  is  no  require- 
ment (as  in  the  Des  Moines  charter)  that  these 
representatives  shall,  despite  their  inexperience  in 
managing  large  affairs,  be  given  the  active  per- 
sonal management  of  a  more  or  less  technical 
municipal  department. 

"7.  The  commission  manager  plan  leaves  the 
lines  of  responsibility  unmistakably  clear,  avoid- 
ing the  confusion  in  the  Des  Moines  plan  between 


VARIOUS    POINTS   OF   VIEW  231 

the  responsibility  of  the  individual  commissioners 
and  that  of  the  commission  as  a  whole. 

"8.  It  provides  basis  for  better  discipline  and 
harmony,  inasmuch  as  the  city  manager  cannot 
safely  be  at  odds  with  the  commission,  as  can  the 
Des  Moines  commissioners  in  their  capacity  as  de- 
partment heads,  or  the  mayor  with  the  council  in 
the  mayor-and-council  plan. 

"9.  It  is  better  adapted  for  large  cities  than  the 
Des  Moines  plan. 

"Large  cities  should  have  more  than  five  mem- 
bers in  their  commission  to  avoid  overloading  the 
members  with  work  and  responsibility,  and  to  avoid 
conferring  too  much  legislative  power  per  individ- 
ual member. 

"Unlike  the  Des  Moines  plan,  the  commission 
manager  plan  permits  such  enlarged  commissions, 
and  so  opens  the  way  to  the  broader  and  more  di- 
versified representation  which  large  cities  need. 

"10.  In  very  small  cities,  by  providing  the  serv- 
ices of  one  wrell-paid  manager  instead  of  five  or 
three  paid  commissioners,  it  makes  possible  econ- 
omy in  salaries  and  overhead  expenses. 

"11.  It  permits  ward  elections  or  proportional 
representation  as  the  Des  Moines  plan  does  not. 
One  or  the  other  of  these  is  likely  to  prove  desira- 
ble in  very  large  cities  to  preserve  a  district  size 


232  THE   CITY   MANAGER 

that  will  not  be  so  big  that  the  cost  and  difficulty 
of  effective  canvassing  will  balk  independent  can- 
didacies, thereby  giving  a  monopoly  of  hopeful 
nominations  to  permanent  political  machines  (see 
No.  ii  in  the  191 1  report). 

"12.  It  creates  positions  (membership  in  the 
commission)  which  should  be  attractive  to  first- 
class  citizens,  since  the  service  offers  opportunities 
for  high  usefulness  without  interruption  of  their 
private  careers. 

"Minority  Report 

"By  Ernest  S.  Bradford. 

"Greater  unity  in  city  government,  which  is  com- 
ing to  be  demanded  in  some  commission-governed 
cities,  can  best  be  secured  by  giving  the  mayor  more 
power  than  the  other  commissioners,  thus  placing 
him  in  the  position  to  properly  coordinate  the  activ- 
ities of  all  departments  and  to  compel,  if  necessary, 
unity  of  action.  This  is  in  line  with  previous  rec- 
ommendations of  the  National  Municipal  League, 
which  has  favored  a  strong  mayor.  It  is  doubtful 
whether  the  idea  should  be  carried  as  far  as  it  is 
applied  in  Houston,  Texas,  but  it  may  be  desirable 
to  experiment  in  this  direction.    The  mayor  would, 


VARIOUS   POINTS   OF   VIEW  233 

in  this  case,  become  the  managing  and  directing 
force  of  the  city. 

"The  city  manager  plan  departs  in  several  re- 
spects from  commission  government  lines,  and  it  is 
doubtful  whether  it  should  be  classed  as  a  mere 
variation  of  commission  government  rather  than  a 
brand  new  plan.  It  contemplates,  we  are  told,  the 
election  of  a  commission  unpaid,  or  receiving  only 
nominal  salaries.  Most  commissioners  are  paid, 
under  the  commission  form,  some  well  paid ;  many 
devote  their  entire  time  to  city  affairs. 

"The  city  manager  plan  permits  election  by 
wards.  Every  commission-governed  city  so  far  has 
abandoned  ward  elections. 

"The  city  manager  plan  should  be  tried  and  the 
results  secured  under  its  operation  impartially  ex- 
amined ;  but  it  should  not  be  classed  under  the  head 
of  the  commission  form  until  it  is  very  clear  that 
it  substantially  agrees  with  the  important  features 
of  that  form.  The  same  credentials  should  be  re- 
quired of  this  new  plan  as  were  held  necessary  in 
the  case  of  the  commission  form,  i.  e.,  evidence  that 
under  it  municipal  conditions  are  better  than  they 
were  under  the  aldermanic  form;  and  in  addition, 
the  evidence  should  be  clear  that  the  city  manager 
plan  is  superior  to  the  commission  form,  before  the 
latter,  now  tested  for  ten  years  and  more,  is  re- 


234  THE   CITY   MANAGER 

linquished  for  a  new  and  untried  type  of  govern- 
ment." 

A  thought-provoking  statement  is  that  of  Hon. 
William  Dudley  Foulke,  who  said,  in  addressing  the 
Toronto  meeting  of  the  National  Municipal 
League : 

"It  seems  to  me  this  entire  question  of  the  pref- 
erence of  one  system  over  the  other  is  a  question 
of  the  adaptability  of  the  particular  form  to  the 
habits,  to  the  prejudices  and  to  the  political  status 
of  the  different  cities  to  which  they  are  to  be  ap- 
plied. I  take  it  that  in  the  end  the  municipal  man- 
ager system  will  be  found  the  one  best  adapted  to 
cities  in  a  general  way.  But  when  it  comes  to 
applying  it  now  to  cities  which  have  been  accus- 
tomed to  political  methods,  and  are  still  subject  to 
boss  rule,  I  am  inclined  to  believe  it  might  be  very 
injurious. 

"This  is  a  kind  of  reform  we  should  not  hurry 
too  much;  we  ought  to  await  developments,  and  I 
am  very  glad  that  the  city  manager  plan  has  been 
preceded  by  the  commission  form  of  government, 
and  that  over  three  hundred  cities  have  already 
adopted  that  form.  This  will  do  a  great  work  in 
eliminating  the  boss  systems  by  which  our  munici- 
palities in  the  United  States  have  so  largely  been 
controlled.     It  will  thereby  lead  public  opinion  to 


VARIOUS   POINTS   OF   VIEW  235 

regard  city  governments  more  and  more  as  largely 
business  affairs  and  to  be  administered  if  not  en- 
tirely upon  business  principles,  at  least  upon  princi- 
ples of  common  decency  and  morality.  After  they 
have  reached  that  state  and  after  politics  in  its 
worst  form  has  become  eliminated,  is  the  time  for 
the  city  manager  system  to  be   applied. 

"For  the  present,  however,  if  you  apply  that  sys- 
tem, I  can  see  what  the  result  will  often  be,  that 
it  may  not  be  an  improvement  on  the  commission 
plan,  but  will  be  even  worse  than  the  old  plan  by 
which  we  have  been  governed.  I  think  I  can  see 
the  man  who  has  been  our  mayor  for  a  great  many 
years,  although  we  now  have  got  him  out.  I  think 
we  know  exactly  how  Doc  Zimmerman  would  act 
if  the  city  manager  plan  were  now  put  on  in  the 
city  of  Richmond.  He  would  lay  his  plans  for  the 
place  before  the  election — the  place,  not  of  mayor, 
but  of  city  manager,  and  he  would  have  his  slate 
of  five  commissioners  who  would  go  in  and  vote 
for  him,  and  he  would  get  men  who  were  personally 
popular  and  knew  how  to  pull  the  ropes.  His  skill 
as  a  politician  is  much  better  than  that  of  the  men 
who  would  oppose  him.  He  would  have  his  five 
men  who  would  vote  for  him,  and  the  issue  be- 
fore election  would  be,  'Are  we  to  have  Doc  Zim- 
merman for  manager  or  not?' 


236  THE    CITY   MANAGER 

"It  is  far  better  to  vote  for  a  man  directly  in- 
stead of  indirectly,  as  we  have  done  in  the  elec- 
tion of  United  States  senators  and  in  the  election 
of  the  President  of  the  United  States.  When  the 
Constitution  was  adopted  it  was  considered  that  the 
best  way  to  elect  a  president  was  not  to  have  the 
whole  body  of  people  vote,  but  to  have  a  selected 
body  or  college  who  would  meet  and  find  out  by 
some  means — by  the  inspiration  of  the  spirit  or 
something — who  was  the  best  man  to  become  Presi- 
dent of  the  United  States;  the  people  could  not  be 
trusted  to  do  that  work.  It  was  the  same  way  in 
electing  senators — not  to  trust  the  whole  body  of 
the  people,  but  to  have  the  Legislature  think  the 
thing  over  and  choose  the  man  they  wanted.  But 
the  people  of  the  United  States  have  now  deter- 
mined by  constitutional  amendment  that  it  is  better 
for  the  people  to  choose  by  direct  election  than 
by  this  indirect  method  which  confuses  and  obscures 
the  issues  and  often  degrades  the  electoral  bodies 
and  makes  mere  dummies  out  of  the  men  who  com- 
pose them.  That  would  be  the  result  in  cities  still 
subject  to  the  political  usages  which  now  prevail 
in  many  parts  of  the  country.  Therefore,  it  would 
be  a  very  bad  thing  for  the  National  Municipal 
League  to  recommend  the  immediate  adoption  of  a 
system  like  that  to  places  that  are  not  ready  for  it. 


VARIOUS    POINTS   OF   VIEW  237 

"Let  all  cities  that  are  ripe  for  business  adminis- 
tration, all  cities  that  have  abolished  political  ideas 
in  their  city  government — let  them  take  the  city 
manager  plan.  But  for  those  which  have  not, 
which  do  not  yet  know  how  to  get  rid  of  the  bosses, 
I  think  it  would  be  a  dangerous  experiment. 

"Suppose  instead  of  calling  him  the  city  man- 
ager, you  call  him  the  city  boss;  you  can  see  how 
the  plan  would  work  out  in  a  community  habitu- 
ated not  to  a  manager,  but  to  a  boss.  So  let  us 
go  slow. 

"  'How  many  things  by  season  seasoned  are 
To  their  right  praise  and  true  perfection !' 

"There  is  a  doubt  as  to  whether  the  manager 
system  has  yet  been  tried  far  enough  for  us  to 
express  a  definite  opinion  as  to  whether  it  is  yet 
preferable  everywhere  to  the  other  system,  though 
I  believe  this  will  ultimately  be  the  case." 

In  an  article  read  before  the  Ohio  League  of 
Municipalities  in  January,  19 14,  at  Columbus, 
Ohio,  Commission  Manager  Charles  E.  Ashburner, 
of  Springfield,  Ohio,  said  substantially  as  follows: 

"There  are  some  advocates  of  the  commission 
form  where  the  commissioners  divide  the  work, 
each  taking  the  management  of  some  department. 


238  THE   CITY  'MANAGER 

If  there  is  success  in  that  form  of  government  in 
small  cities,  I  think  it  can  only  be  a  matter  of  luck. 
How  can  voters  select  men,  three  or  four,  who  have 
knowledge  of  the  branches  of  government  they  are 
supposed  to  manage?  Again  the  salaries  necessary 
to  pay  three  or  four  competent  men  are  prohibitory 
in  a  small  city.  No  man  can  successfully  manage 
any  branch  of  municipal  affairs  unless  he  devote 
his  entire  time,  thought  and  energies  to  the  par- 
ticular work  and  if  he  does  this  he  will  become 
absorbed  in  his  particular  branch  and  be  unable  to 
do  justice  to  other  branches  when  he  meets  with 
the  other  commissioners  on  the  general  business  of 
the  city.  Imagine  three  perfect  departmental  heads, 
all  of  whom  are  commissioners,  meeting  and  try- 
ing to  be  unbiased  in  the  division  of  the  tax  dupli- 
cate. Show  me  a  good  department  head,  I  will 
show  you  a  bad  commissioner.  The  only  possible 
connecting  link  between  the  legislative  and  the  op- 
erative branches  is  the  hired  manager.  The  com- 
missioner is  the  director — he  is  the  same  man  you 
find  in  the  Standard  Oil  Company,  the  railroad,  the 
bank,  the  local  ice  company  or  in  any  other  cor- 
poration. He  is  the  keen  business  man  who  does 
not  pretend  to  interfere  with  the  operating  ma- 
chinery but  who  knows  when  the  man  at  the  helm 
(the  manager)  is  delivering  the  goods. 


VARIOUS   POINTS   OF   VIEW  239 

"It  has  been  argued  that  men  suitable  for  man- 
agers of  cities  are  hard  to  find.  True;  because 
there  has  been  small  demand  for  such  an  article, 
but  I  am  sure  that  they  will  develop  as  rapidly  as 
the  demand — so  this  is  merely  a  ghost  trouble. 
The  real  trouble  with  the  business  management  of 
small  cities  is  the  fact  that  in  small  communities 
each  citizen  knows  more  about  his  neighbor's  busi- 
ness than  he  does  himself  and  such  familiarity 
makes  men  cowardly  when  it  comes  to  doing  their 
duty,  if  such  duty  should  offend  their  neighbor. 
The  hired  manager's  future  in  life  is  dependent 
upon  his  fearless  discharge  of  his  duties.  He  may 
be  turned  down  and  crushed  temporarily  but  the 
business  men  of  this  country  are  looking  for  such 
men.  Another  argument  in  favor  of  the  hired  em- 
ployee— I  hope  I  have  not  wearied  you  with  my 
arguments  for  my  manager  form — I  believe  it  is 
right,  and  having  convinced  myself,  at  least,  I  will 
try  and  show  you  the  working  plan  of  organization. 
First  the  commissioners,  three  or  five,  with  nominal 
salary  as  a  board  of  directors,  one  of  whom  (se- 
lected by  the  commission,  to  be  president  of  the 
body)  and  for  all  legal  purposes  to  occupy  the  po- 
sition of  mayor.  The  commission  to  hire  a  man- 
ager who  shall  hold  office  during  the  pleasure  of 
the  commission. 


240  THE   CITY   MANAGER 

"The  treasurer  and  auditor  and  solicitor  should 
also  be  appointed  by  the  commission,  but  every 
other  city  employee  should  be  appointed  by  the  city 
manager,  who  should,  of  course,  be  broad  enough 
to  allow  the  heads  of  departments  to  select  their 
help.  The  manager  armed  with  this  authority 
should  be  held  to  strict  account  for  results  and 
should  be  removed  whenever  the  commission  find 
that  they  can  improve  the  service  by  his  absence. 

"Nothing  but  strict,  impartial,  unbiased,  honest, 
and  fearless  business  should  be  tolerated  in  any 
city  hall. 

"America  can  and  does  produce  the  type  of  man 
necessary  and  as  soon  as  a  public  conscience  is 
aroused  that  will  support  such  men,  they  will  come 
out  of  the  service  of  the  big  corporations  and  give 
their  time  to  the  citizens  of  our  municipalities. 
Heretofore  few  clean  men  have  been  willing  to 
accept  the  mud  and  slime  of  politics  thrown  upon 
those  who  dare  to  do  their  duty." 

For  this  particular  work,  Mr.  Ashburner  has  set 
forth  his  views  upon  the  commission  manager  ques- 
tion thus : 

"Believing  as  I  do  that  the  commission  manager 
form  of  government  comes  nearer  solving  the 
problems  of  municipal  administration  than  any 
other  form  heretofore  in  existence  I  would  like  to 


VARIOUS   POINTS   OF   VIEW  241 

be  recorded  as  one  of  those  who  does  not  believe, 
however,  that  the  failure  of  the  council  form  of 
government  is  due  to  the  men  who  constitute,  in  a 
majority  of  cases,  the  councils  of  our  cities. 

"The  average  councilman  in  an  American  city 
is  a  self-sacrificing,  honest  citizen  whose  energies 
are  expended  in  conducting  a  law  office,  a  grocery, 
a  drug-store  or  some  other  kind  of  work  in  order 
that  he  may  provide  a  suitable  living  for  himself 
and  family,  and  yet,  during  a  few  hours  each 
month,  he  attempts  to  act  as  a  director  in  a  mu- 
nicipal corporation  handling  affairs  involving  large 
sums  of  money,  often  allowing  his  vote  to  be  in- 
fluenced by  those  who  have  made  it  their  business 
to  see  that  some  pet  scheme  is  presented  to  him 
during  his  busy  hours  in  its  most  favorable  light. 
He  is  also  handicapped  by  having  each  department 
a  separate  unit  which  does  not  cooperate  with  other 
units  composing  the  city  government  and  often  he 
does  not  know  what  is  the  proper  thing  to  do. 

"It  took  some  years  for  the  American  people  to 
learn  that  this  unqualified  board  of  directors,  not- 
withstanding their  honesty,  was  a  failure  in  giving 
to  cities  an  economical  and  efficient  administration. 
The  next  move  was  the  commission  form  of  gov- 
ernment in  which  a  various  number  of  commis- 
sioners were  elected  by  the  people,  these  commis- 


242  THE   CITY   MANAGER 

sioners  then  constituting  themselves  into  heads  of 
various  departments.  This  again  is  a  weakness  in 
that  the  voters  cannot  possibly  elect  three  or  five 
men  who  are  experts  in  the  various  lines  of  work 
they  take  up  as  managing  directors  after  their  elec- 
tion. Suppose,  also,  that  the  five  commissioners 
should  be  men  capable  of  managing  the  various  de- 
partments of  the  city  government,  is  it  not  to  be 
presumed  that  the  expense  of  paying  such  men 
would  be  enormous?  Allowing  that  the  salaries 
justify  the  employment  of  high-class  commissioners 
and  allowing  that  chance  has  given  to  the  people  a 
man  fitted  for  each  position,  we  still  have  that 
weakness  in  human  nature,  namely,  that  no  man  can 
successfully  manage  any  branch  of  municipal  affairs 
unless  he  devote  his  entire  time,  thought  and  ener- 
gies to  his  particular  work  and  should  he  do  this 
he  will  become  absorbed  in  his  particular  branch  and 
be  unable  to  do  justice  to  the  other  branches  of  the 
government  when  he  meets  with  the  other  com- 
missioners on  the  general  business  of  the  city. 

"Success  has  come  to  the  American  business  cor- 
poration through  the  organization  of  a  board  of  di- 
rectors who  are  capable  business  men  and  who  are 
able  to  grasp  a  situation  when  presented  to  them 
in  its  various  phases  by  an  employee  designated  as 
the  manager.    Why  should  not  success  come  to  the 


VARIOUS    POINTS   OF   VIEW  243 

municipal  corporation  from  the  same  organization 
that  has  made  the  success  of  American  business  a 
by-word  the  world  over? 

"The  manager  should  be  a  man  with  versatile 
qualifications,  one  who  is  not  afraid  to  do  what  he 
believes  right,  and  above  all,  one  who  will  be  abso- 
lutely frank  and  honest  in  his  dealings  with  his 
board  of  directors. 

"The  fact  that  in  six  years,  from  a  small  begin- 
ning, the  commission  manager  form  is  now  in  op- 
eration in  sixteen  different  municipalities  in  this 
country,  and  that  in  no  case  have  we  heard  of  any 
desire  to  change  back  to  any  of  the  more  ancient 
forms  of  administration  speaks  well  for  what,  to 
my  mind,  is  the  most  original,  the  most  simple,  and 
the  most  concentrated  form  of  municipal  organiza- 
tion." 

Mr.  Waite  has  expressed  his  views  and  some  of 
his  experiences  in  the  succeeding  article  written 
for  this  book. 


"THE  CITY  MANAGER  FORM  OF  GOVERNMENT 
IN  THE  LIGHT  OF  EXPERIENCE 

"There  are  two  pertinent  questions :    first,  'Can 
the  commission  manager  form  of  government  be 


244  THE    CITY    MANAGER 

made  successful?' — second,  'Can  the  commission 
manager  form  of  government  be  made  permanent, 
if  successful?' 

"Immediately  after  the  Home  Rule  Amendment 
was  passed  in  Ohio  the  thinking  men  of  Dayton 
worked  out  a  plan  of  action.  The  new  charter  was 
the  result  of  their  efforts. 

"This  charter  comprises  the  basic  form  of  or- 
ganization used  in  all  large  corporations.  Mr.  Pat- 
terson, president  of  the  National  Cash  Register 
Company,  the  ruling  spirit,  used  the  rule  of  five 
which  he  uses  in  all  of  his  own  organization  charts 
— five  commissioners  elected  at  large  and  non-par- 
tisan, and  five  departments.  The  flood  of  Dayton 
aided  in  bringing  the  people  together.  Party  lines 
were  obliterated.  Five  sound  business  men  were 
elected  as  commissioners.  They  selected  the  man- 
ager. The  manager  selected  the  directors  of  the 
five  departments. 

"The  director  of  law  was  on  the  charter  com- 
mission as  its  legal  representative.  The  director  of 
finance  was  a  public  accountant.  The  director  of 
welfare  was  a  minister,  broad,  intelligent,  doing  his 
greatest  work  outside  of  his  church.  The  director 
of  service  is  an  engineer  trained  in  municipal  work, 
and  brought  to  Dayton  for  this  service.  The  di- 
rector of  safety  has  not  been  appointed;  the  man- 


VARIOUS   POINTS    OF   VIEW  245 

ager  is  acting  director.  All  the  men  selected  are 
trained  for  the  particular  functions  which  they  di- 
rect. I  cannot  tell  you  the  political  faith  of  the 
commissioners  or  of  the  directors.  They  were  se- 
lected for  their  ability.  There  were  no  political 
debts  to  be  paid.  Our  energies  have  been  expended 
on  progressive  and  constructive  lines.  We  have  not 
attempted  the   sensational. 

"Careful,  expert  investigations  have  preceded  all 
new  plans. 

"Expert  engineers  have  worked  out  intelligent 
plans  for  improvements  in  the  waterworks,  look- 
ing well  into  future  requirements.  Expert  engi- 
neers have  investigated  and  made  report  on  the 
proper  distribution  of  city  wastes.  Expert  engi- 
neers are  advising  us  in  the  plans  for  the  develop- 
ment of  a  comprehensive  sewer  system. 

"In  a  similar  way,  we  have  investigated  crime 
and  social  conditions,  police  and  fire  departments, 
parks  and  playgrounds,  city  planning,  and  grade 
elimination. 

"In  our  finance  department,  our  new  account- 
ing system  is  the  same  as  would  be  found  in  any 
large  business.  Our  budget  is  scientific.  Every 
month  the  head  of  each  department  receives  a  com- 
plete financial  statement  which  shows  the  original 
allowance,  expenditures  and  balance  in  each  ac- 


246  THE   CITY   MANAGER 

count.    We  keep  our  expenditures  inside  our  allow- 
ances. 

"In  August  we  found  that  our  estimated  reve- 
nues were  too  high.  With  our  system  of  account- 
ing and  budget,  we  were  enabled,  in  two  days,  to 
reduce  expenditures  forty-five  thousand  dollars,  and 
reorganize  all  work  accordingly.  It  was  customary 
to  issue  bonds  for  current  expenses.  This  practice 
has  been  stopped.  We  inherited  a  promissory  note 
the  first  of  the  year  for  one  hundred  and  twenty- 
five  thousand  dollars  in  the  safety  department, 
which  was  paid  in  February.  This  will  be  reduced 
this  year  over  twenty-five  thousand  dollars.  All 
current  funds  in  the  treasury  have  been  put  into 
one.  It  has  not  been  necessary  to  borrow  any 
additional  money  on  this  note  up  to  this  time,  and 
we  will  save  five  thousand  dollars  in  interest. 

"Our  purchasing  department  will  save  twenty 
thousand  dollars  this  year.  Every  department  has 
unit  cost  systems.  Efficiency  is  maintained  by  the 
deadly  parallel. 

"Police  and  fire  drills  have  been  enforced.  Civil 
service  records  show  merits  and  demerits.  The 
men  are  listed  on  the  results  of  examinations  as 
well  as  by  daily  performances.  Policewomen  are 
aiding  in  the  handling  of  women  derelicts  and  do- 
mestic troubles. 


VARIOUS   POINTS   OF   VIEW  247 

"The  organization  is  keyed  up  to  preventive 
methods. 

"The  fire  department  is  continually  making  house 
to  house  inspections,  reducing  fire  hazard.  Work- 
house prisoners  are  used  on  municipal  improve- 
ments, parks,  cleaning  and  repairing  streets.  A  mu- 
nicipal lodging  house  has  been  established.  The 
inmates  are  worked  one-half  day.  All  philanthropic 
and  city  nursing  has  been  combined  into  the  wel- 
fare department,  thus  saving  all  duplication  of 
effort.  District  surgeons  have  been  appointed; 
three  baby  clinics  and  milk  stations  have  been 
established. 

"In  the  months  of  June,  July,  August,  September 
and  October,  the  death  rate  of  babies  of  under  one 
year  has  been  reduced  forty  per  cent,  over  last  year. 
One  general,  and  two  tuberculosis,  clinics  have  been 
established. 

"School  children  have  been  joined  in  a  Civic 
Workers'  League  and  help  to  keep  the  city  clean. 
Prizes  have  just  been  awarded  to  the  school  dis- 
tricts showing  the  greatest  improvement.  Chil- 
dren's and  back  yard  gardens  have  been  awarded 
prizes.  Any  family  or  neighborhood  willing  to 
clean  up  empty  lots,  was  aided  by  the  city  remov- 
ing the  rubbish,  and  plowing  the  lots.  Four  hun- 
dred lots  were  cleaned  and  plowed;  four  hundred 


248  THE   CITY   MANAGER 

dirty  spots  were  turned  into  four  hundred  gardens 
which  furnished  vegetables  to  four  hundred  fam- 
ilies, and  gave  a  new  interest  to  them. 

"The  Civic  Music  League  has  been  established; 
concerts  have  been  given  in  community  centers  and 
choruses  organized.  A  series  of  six  concerts  to  be 
given  by  foremost  artists  and  symphonies,  has  been 
arranged  for  the  winter  of  1914-15,  at  a  rate  of 
three  dollars  and  a  half  for  the  season.  Twenty- 
five  hundred  seats,  which  is  the  capacity  of  the 
hall,  have  been  sold. 

"In  ten  months  much  has  been  accomplished,  and 
economically  accomplished.  The  city  manager 
form  of  government  can  be  made  successful. 

"As  to  the  second  question  in  your  mind,  'Can 
this  success  be  made  permanent?' — the  answer  to 
this  question  lies  with  the  people. 

"The  American  people  are  habituated  to  the  idea 
of  change.  It  is  customary  when  we  have  elected 
one  party  into  power,  to  have  the  other  party  or 
parties  immediately  start  a  campaign  to  show  us 
why  that  party  should  be  out  of  power.  We  are 
restless  for  change.  It  is  inbred  in  the  nation.  The 
results  accomplished  by  the  new  form  of  govern- 
ment now  coming  into  use,  can  as  yet,  scarcely  be 
grasped  by  the  very  people  who  have  voted  these 
governments  into  power. 


VARIOUS    POINTS    OF   VIEW  249 

"Each  new  improvement  offends  someone's 
prejudices  or  purse.  Too  many  new  improvements 
breed  too  many  centers  of  discontent.  As  a  peo- 
ple we  are  fickle;  we  learn  by  experience  and 
slowly,  and  often  through  waste.  These  new  forms 
of  municipal  government  have  many  ups  and  downs 
ahead  of  them.  We  love  to  live  as  we  have  lived. 
Changes  with  which  we  are  not  in  complete  sym- 
pathy we  are  prone  to  define  as  whims.  Every 
citizen  is  an  expert  on  all  municipal  questions.  Our 
duty,  your  duty,  is  to  educate  the  people  to  appre- 
ciate the  possibilities  of  these  new  forms  of  gov- 
ernment which  we  have  called  into  being.  There, 
to  my  mind,  now  lies  the  greatest  work.  Publicity 
must  be  given  to  the  results  obtained  by  the  new 
governments.  We  must  obtain  an  efficient  citizen- 
ship. Interest  should  be  maintained  through  the 
schools.  We  need  fewer  elections,  longer  terms, 
and  thereby  greater  efficiency. 

"The  commission  manager  form  of  government 
can  be  made  a  success.  ...  Its  permanency  de- 
pends upon  an  intelligent  citizenship,  and  their  con- 
tinued determination  to  keep  partisan  politics  out 
of  municipal  affairs." 

Dayton  Charter  Faults. — Professor  Herman  G. 
James  has  set  forth  succinctly  the  vital  objections 
opponents  of  the  city  manager  plan  find  in  it.     He 


250  THE   CITY   MANAGER 

is  specifically  objecting  to  the  Dayton  charter,  and 
says: 

"The  first  of  these  weaknesses  is  found  at  the 
very  beginning  of  the  charter  where  in  section  I 
an  enumeration  of  the  powers  of  the  corporation 
is  attempted.  Now  it  is  a  well-recognized  fact  that 
the  practice  of  enumerating  the  corporate  powers 
of  cities  has  been  the  source  of  great  inconvenience, 
in  this  country.  No  enumeration  can  ever  be  com- 
plete and  so  it  is  necessary  to  add,  as  has  been  done 
in  section  2  of  the  Dayton  charter,  that  'enumera- 
tion of  particular  powers  by  this  charter  shall  not 
be  held  or  deemed  to  be  exclusive,  but,  in  addition 
to  the  powers  enumerated  herein,  implied  thereby 
or  appropriate  to  the  exercise  thereof,  the  city  shall 
have,  and  may  exercise  all  other  powers  which  un- 
der the  constitution  and  laws  of  Ohio  it  would  be 
competent  for  this  charter  specifically  to  enumerate.' 
Even  if  such  a  blanket  provision  effected  its  pur- 
pose, namely,  to  confer  upon  the  city  all  local  pow- 
ers so  far  as  possible  under  the  laws  and  constitu- 
tion, we  would  at  least  have  to  conclude  that  the 
enumeration  in  section  1  is  surplus  verbiage.  But 
that  is  not  all,  for  courts  have  repeatedly  taken 
the  view  that  the  principle  of  inclusio  unites,  exclusio 
altcrius  will  be  applied  whenever  there  is  an  enumer- 
ation of  such  corporate  powers,  and  that  a  blanket 


VARIOUS    POINTS   OF   VIEW  251 

clause  like  that  of  section  2  above  will  not  be  given 
effect.  Hence  such  an  enumeration  so  far  from 
being  of  any  benefit  may  be  a  positive  detriment. 
Much  better,  therefore,  would  it  be,  to  make  a 
general  grant  of  powers  subject  to  the  limitations 
imposed  in  the  charter. 

"The  second  feature  of  the  Dayton  charter  which 
it  would  seem  undesirable  for  other  cities  to  copy 
relates  to  the  nomination  provision.  More  than  two 
pages  are  taken  up  with  regulations  concerning 
primary  elections,  when  it  would  have  been  much 
simpler  to  provide  for  nomination  by  mere  declara- 
tion, on  the  English  plan.  Primary  elections  are 
no  doubt  superior  to  the  old  packed  convention  sys- 
tem of  party  nomination,  but  where  it  is  the  avowed 
purpose  of  a  charter,  as  it  is  that  of  the  Dayton 
charter  to  have  'party  politics  eliminated'  it  is  un- 
necessary to  have  any  kind  of  formal  nomination 
procedure.  Primary  elections  double  the  cost  of 
elections,  and,  what  is  worse,  they  double  the  burden 
of  the  elector,  which  means  just  that  much  less 
participation  by  the  voters,  especially  the  best  fitted 
ones.  If  a  multiplicity  of  candidates  is  feared,  it  is 
suggested  that  the  probability  of  minority  candi- 
dates being  chosen  as  a  result  of  many  applicants 
is  on  the  one  hand  not  a  real  danger  and  on  the 
other  can  be  met  in  a  simple  manner.    That  facility 


252  THE   CITY   MANAGER 

in  becoming  a  candidate  does  not  necessarily  lead 
to  a  plethora  of  aspirants  is  shown  by  the  expe- 
rience of  England.  But  even  if  it  should  do  so 
in  this  country  the  danger  of  minority  choices  can 
be  met  by  the  use  of  the  preferential  ballot. 

"The  third  objectionable  feature  of  the  Dayton 
charter  is  of  much  greater  significance  because  it 
seems  to  strike  right  at  the  heart  of  the  city  manager 
principle.  By  section  13  of  the  charter  the  city  man- 
ager is  made  subject  to  recall.  Now  it  seems  clear 
that  the  very  first  step  in  the  direction  of  expert  city 
administration  was  to  take  the  choice  of  the  experts 
out  of  the  hands  of  the  electorate  and  to  put  it  into 
the  hands  of  some  other  organ,  the  council  or  the 
mayor  as  the  case  might  be.  It  was  felt  that  this 
offered  greater  opportunity  of  getting  an  expert 
man  in  the  first  place  and  of  having  him  administer 
the  affairs  of  the  city  energetically,  without  con- 
tinually weighing  in  his  mind  the  probable  effects 
of  enforcing  this  or  that  administrative  measure 
which  might  be  disagreeable  to  this  or  that  influen- 
tial political  individual  or  group.  If  it  is  character- 
istic of  the  city  manager  plan  to  make  the  com- 
mission or  council  responsible  for  choosing  the  best 
man  for  the  place,  what  possible  justification  can 
there  be  for  making  that  same  man  subject  to  recall 
by  the  electorate?    If  he  must  'make  a  hit  with  the 


VARIOUS    POINTS    OF   VIEW  253 

people'  to  keep  from  being  recalled,  he  is  scarcely 
in  a  better  situation  than  if  he  has  to  make  a  hit 
with  the  people  to  be  elected  in  the  first  place  and 
his  motives  will  inevitably  be  influenced  by  the 
contemplation  of  what  response  this  or  that  pro- 
posed improvement  will  meet  with  in  the  minds  of 
the  voter." 

Counter-arguments. — A  counter-argument  to  his 
first  objection  is  that  all  the  rights  of  the  city  are 
secured  by  the  phrase  he  objects  to,  however  ver- 
bose; and  those  versed  in  law  and  who  must  con- 
tend with  its  technicalities  learn  that  words  and 
seemingly  needless  provisions  in  the  eyes  of  the  lay- 
man may  take  on  vital  significance  when  tested  by 
the  local  rules  of  law  according  to  which  they  must 
stand  or  fall;  this  charter  of  Dayton  was  drawn 
under  the  supervision  of  able  lawyers  familiar  with 
specific  statutes  of  the  General  Code  of  Ohio.  Ad- 
vocates of  the  Dayton  charter  will  urge  that  the 
objection,  therefore,  shall  not  be  given  too  much 
weight.  However,  the  plan  itself  is  not  vitally  af- 
fected one  way  or  the  other. 

The  second  objection  depends  for  its  weight  upon 
local  conditions.  The  Socialists  in  some  communi- 
ties prefer  the  preferential  ballot  and  other  factions 
or  other  communities  prefer  other  forms.  No  one 
form  is  essential  to  the  city  manager  idea.     The 


254  THE   CITY   MANAGER 

people  of  Ohio  and,  in  this  particular  instance,  Day- 
ton, were  thoroughly  conversant  with  the  primary 
elections;  and  knowing  how  to  handle  and  achieve 
very  excellent  results,  it  was  very  wise  to  retain 
that  feature  when  so  many  innovations  were  being 
introduced  already. 

In  regard  to  the  third  objection,  those  who  can- 
not agree  with  it  say  that  there  is  no  difference 
between  recalling  a  commission  because  the  man- 
ager is  unsuitable  and  recalling  the  manager  direct. 
In  fact,  they  claim  the  latter  is  more  in  keeping 
with  the  direct  government  idea  of  the  city  man- 
ager plan  in  that  the  executive  proving  unsuitable, 
they  remove  him,  without  disturbing  the  legisla- 
tive commission  with  whose  policies  they  may  be  in 
entire  sympathy  and  whom  they  may  wish  to  re- 
tain, while  they  do  not  care  to  keep  the  manager 
whom  the  commission  selected,  and  whose  methods 
of  execution  are  displeasing.  It  is  also  easier  to 
remove  one  man  than  attack  a  number  of  the  com- 
mission; the  removal  of  the  manager  might  alone 
be  sufficient  to  insure  popular  desires  being  com- 
plied with  without  removal  of  the  commission,  be- 
cause of  its  salutary  effect.  Nevertheless,  removal 
of  both  manager  and  commission  by  recall  is  pro- 
vided for. 


CHAPTER   XIV 

ADVANTAGES  AND  DISADVANTAGES 

Officials  in  commission  cities  do  not  need  the  boss  be- 
cause he  can  give  them  nothing. 

Bruere 

Arguments  for  Old  Form 

In  behalf  of  the  conventional  form  of  city  ad- 
ministration, its  advocates  have  advanced  certain 
stock  arguments.  Those  who  so  earnestly  desire 
the  retention  of  that  system  have  argued  that  de- 
centralization of  power  in  the  new  government  will 
be  the  chiefest  evil.  They  claimed,  and  it  is  a  fine 
sounding  phrase  in  a  political  speech,  that  democ- 
racy should  not  tolerate  the  exercise  of  a  great 
amount  of  power  by  any  one  man.  Let  no  one 
official,  greedy  of  power,  control  a  major  part  of 
the  government!  We  agree.  Yet,  practically,  it 
has  been  found  that  where  a  small  amount  of  power 
is  given  each  official,  this  fragmentary  authority 
when  abused  was  too  small  to  locate  or  too  minute 

to  justify  a  large  expenditure  to  correct;  that  re- 

255 


256  THE   CITY   MANAGER 

sponsibility  was  shifted  from  one  official  to  another 
with  the  remark  that  he  was  not  responsible,  but 
that  a  certain  other  official  was,  while  the  next 
official  claimed  still  another  was  chargeable  in  the 
premises ;  and  so  on  in  an  exasperating  meandering 
through  the  labyrinth  of  public  office.  That  was  the 
practical  result  of  decentralization  of  power  and 
responsibility,  and  one  radically  different  from  the 
happy  view  of  it  in  campaign  literature. 

Responsibility  to  Popular  Will. — The  old  form 
was  a  more  flexible  government,  pliant  to  the  will 
of  the  people,  it  was  claimed,  because  each  officer 
was  responsible  to  his  constituents.  But  who  were 
his  constituents?  That  was  the  crucial,  if  some- 
what embarrassing,  question.  Experience  proved 
that  an  official  was  put  into  power  by  a  political 
leader  under  cover  of  party  principles  and  prac- 
tices, and  naturally  the  official  in  a  very  human 
way  customarily  regarded  the  party,  using  the  short 
term  for  the  party  leader,  as  his  constituents.  It 
was  quite  true  an  official  felt  responsible  to  his 
constituents,  but  the  people  a  major  part  of  the  time 
experienced  little  of  this  adherence  to  their  own 
interests.  The  maxim  that  public  service  is  a  public 
duty  has  not  always  been  the  motto  in  city  halls. 

Wards. — The  same  adverse  criticism  applies  to 
the  ward  system.    The  sentimental  idea  that  a  man, 


ADVANTAGES   AND    DISADVANTAGES    257 

elected  from  a  section  of  the  city,  would  be  in  active 
touch  and  sympathy  with  its  particular  needs,  was 
calculated  to  touch  the  heart  strings  of  the  voters. 
It  was  a  fine  sentiment  and  excellent  politics;  but 
in  actual  practice  displayed  a  distressing  result.  It 
has  been  found  in  this  arrangement  of  the  old  city 
that  an  alderman  harkened  to  the  political  boss  in 
his  ward,  rather  than  to  its  public  needs ;  that  it  was 
a  scheme  for  trading  political  "sugar  plums,"  rather 
than  a  position  the  occupant  of  which  displayed  an 
intuitive  faculty  in  divining  the  needs  of  his  fellow- 
townsmen. 

Separation  of  Pozvers. — Furthermore,  these  pro- 
ponents of  the  traditional  municipal  government 
advanced  the  claim  that  legislative  and  executive 
functions  must  be  separate.  So  they  should.  Nev- 
ertheless, the  application  of  the  principle  in  the 
former  governments  was  so  erroneous  as  to  fail 
in  achieving  adequate  results.  The  executive  power 
under  the  old  mayor  and  council  plan  coupled  with 
a  veto,  gave  the  mayor  a  control  unwarranted  and 
unnecessary  in  municipal  affairs.  A  veto  in  state 
or  national  government  is  a  very  beneficial  preroga- 
tive, but  the  city  presents  another  problem,  when 
considered  in  comparison  with  projects  of  purely 
political  significance.  The  usual  council  was  un- 
wieldy ;  was  frequently  dominated  by  political  inter- 


258  THE   CITY   MANAGER 

ests;  was  incoherent  in  organization  because  of  the 
transaction  of  business  by  ill-organized  committees, 
whose  proceedings  were  often  secret  in  character  or 
ill-recorded.  This  body  has  been  justly  arraigned 
on  charges  of  irresponsiveness  to  public  will,  ex- 
travagance, incompetence,  political  favoritism  and 
legislative  action  founded  on  whim  rather  than  on 
exact  knowledge.  To  retain  the  legislative  idea, 
but  abolish  the  signal  shortcomings,  was  the  aim  of 
the  charter  framers.  How  justified  they  were  in 
their  efforts,  the  records  of  deficits,  gross  incom- 
petence, and  criminal  extravagance  are  mute  wit- 
nesses. 

Minorities. — Thus  stood  the  main  arguments  for 
the  conventional  city  government.  Its  survival  for 
several  hundred  years  is  of  no  other  significance 
than  that  it  has  had  a  fair  trial.  Its  present  faults 
and  inadequacies  should  decree  its  exit.  As  the  rea- 
sons why  local  and  national  politics  should  be  alien- 
ated have  already  been  discussed,  there  remains  only 
the  question  as  to  whether  the  new  government  will 
mean  the  abolition  of  parties  and  strong  minorities. 
Parties  may  be  depended  upon  so  long  as  human 
views  differ.  It  is  true  that  the  old  system  of  mi- 
norities will  disappear,  but  only  in  kind,  not  in 
substance.  The  minority  in  a  political  machine  has 
been  so  often  subsidiary  to  the  dominant  party,  or 


ADVANTAGES   AND   DISADVANTAGES    259 

conspicuous  principally  because  so  ineffective;  its 
departure  will  be  only  notable  because  of  the 
passing  of  the  fine  art  in  political  graft.  Parties 
are  essential,  but  in  local  government  they  must 
be  built  on  different  issues  and  different  lines  from 
present  city  politics. 

Essentials. — Three  radical  principles  are  essential 
to  a  modern  mimicipal  administration.  First,  can- 
didates must  be  tested  on  the  basis  of  efficiency,  not 
political  faithfulness;  technical  men  must  be  se- 
lected for  technical  jobs  and  business  men  for  pol- 
_  icy-forming  positions.  Second,  publicity  and  re- 
sponsibility of  a  few  well-known  men  are  the  nec- 
essary prerequisites  for  results.  Third,  business 
methods  must  be  utilized  in  a  business  corporation. 

Arguments  for  City  Manager  Plan 

These  three  vital  objects  were  the  ambition  of 
the  charter  framers  of  the  city  manager  plans.  Ef- 
ficiency, publicity,  and  concentrated  responsibility 
stand  the  triple  commandments  of  the  new  gospel 
of  government. 

Efficiency. — Business  of  any  complication  de- 
mands trained  men  to  guide  it.  Municipal  officers 
are  no  exception  to  the  rule.  England,  Germany 
and  France  have  a  body  of  municipal  officials  of 


260  THE   CITY   MANAGER 

long  training  who  regard  the  work  as  a  profes- 
sional man  would  regard  his  own.  Why  should 
not  we,  being  of  practical  genius,  adopt  so  obvious 
a  plan?  We  are  adopting  one.  We  have  not  done 
so  sooner,  for  one  excellent  reason,  because  there 
has  been  until  now  no  class  of  men  of  this  type 
from  which  to  draw  competent  municipal  execu- 
tives. 

We  have  a  professional  administrator  now.  The 
city  manager  plan  secures  efficiency  through  the 
employment  of  an  expert  municipal  governor.  His 
technical  training,  his  business  experience,  and  his 
knowledge  of  city  needs  are  valuable  adjuncts  to  ex- 
ecutive ability.  They  are  the  highroad  for  the 
application  of  his  personality.  This  insures  effi- 
ciency. 

Concentration. — The  civic  system  is  simplified. 
The  whole  city  is  unified  under  one  management; 
the  municipality  is  vigorously  controlled  under  one 
competent  responsible  head.  A  city,  no  more  than 
an  individual,  can  realize  its  fullest  promise  under  a 
dual  personality.  The  city  manager  plan  pro- 
vides,  therefore,   concentrated   responsibility. 

The  legislative  function  is  left  unimpaired.  Men 
of  sound  business  experience  under  this  plan  can 
feel  free  to  accept,  without  detriment  to  their  pri- 
vate interests,  the  position  of  commissioner.     It  is 


ADVANTAGES   AND   DISADVANTAGES    261 

within  the  scope  of  their  experience  and  they  can 
bring  to  the  position  the  valuable  ideas  of  a  ripe 
business  judgment ;  and  furthermore,  this  plan  con- 
templates that  this  body  of  business  men,  styled  the 
commission,  who  are  trained  in  the  selecting  and 
fitting  of  men  to  their  duties,  shall  select  the  man- 
ager. The  selection  of  the  chief  est  personal  factor 
is  left  to  them.  Two  advantages  result.  On  the 
one  hand,  there  is  no  trust  put  in  the  dangerous 
method  of  allowing  a  selection  of  an  expert  by 
popular  elections  at  short  intervals;  on  the  other 
hand,  the  people  do  not  have  the  restriction  im- 
posed on  them  in  selecting  commissioners,  of  elect- 
ing at  the  same  time  in  the  same  persons  those 
who  are  capable  of  the  twin  duties  of  legislation 
and  administration. 

Publicity. — Intelligent  action  of  a  voter  can  only 
be  exercised  when  he  is  thoroughly  equipped  with 
reliable  information.  Public  hearings  on  the 
budget,  readable  and  understandable  publications 
as  to  the  city's  financial  and  physical  condition,  a 
public  reason  publicly  stated  for  the  transaction  of 
a  public  affair,  all  constitute  a  great  guardianship 
of  civic  interests.  To  know  is  to  understand,  to 
understand  is  to  interest,  to  interest  is  to  treat  with 
success. 

The  Dayton  Bureau  of  Municipal  Research  pub- 


262  THE   CITY   MANAGER 

lished  the  following  excellent  summary  of  the  ad- 
vantages of  the  city  manager  plan : 

"i.  There  is  the  same  concentration  of  power 
and  responsibility  found  in  the  regular  commission 
plan. 

"2.  The  elections  are  non-political  and  for  long 
terms  of  office. 

"3.  The  interests  of  the  citizens  are  safeguarded 
by  initiative,  referendum  and  recall. 

"4.  The  plan  has  the  added  advantage  of  sepa- 
rating legislative  from  executive  duties. 

"5.  Employment  of  trained  administrators  for 
long  terms  is  assured. 

"6.  Should  an  appointive  officer  fail  to  make 
good,  he  can  be  removed  instantly. 

"7.  The  plan  is  similar  to  the  organization  of 
business  enterprises,  and  continental  cities  where  its 
success  has  been  amply  proven. 

"8.  The  extension  of  the  Civil  Service  and  inde- 
pendence of  the  Board  of  Elections  will  absolutely 
prevent  the  building  of  a  political  machine  by  either 
the  Manager  or  the  Commissioners." 

Arguments  Against  the  City  Manager  Plan 

Good  men  can  be  found  in  any  city  to  run  it,  is 
the   traditional  maxim  of  local  politics.      Such  is 


ADVANTAGES   AND   DISADVANTAGES    263 

the  argument  in  opposition  to  the  new  plan.  And 
this  may  be  quite  true  so  far  as  ability  is  con- 
cerned. There  is  inevitably  a  radical  advantage 
in  having  a  man  of  ability  coupled  with  a  mind 
fresh  to  a  new  situation,  keen  to  grasp  the  original 
problems,  and  open  to  persuasion,  unshackled  as  he 
is  by  the  fetters  of  tradition  and  old  ideals.  No 
clique  or  party  or  political  organization  or  reform 
movement  would  have  any  predominant  claim  upon 
him.  Long-continued  influence  of  an  environment 
will  inevitably  have  a  profound  hold  on  any  man, 
and  this  provision  affords  opportunity  to  avoid  the 
evil  consequences  of  it. 

It  must  be  understood,  nevertheless,  that  the  se- 
lection of  a  man  outside  of  the  city  is  permissible 
and  not  necessary ;  the  provision  is  for  the  sake  of 
the  securing  the  best  without  handicap.  Opponents 
of  the  plan  claim  that  it  is  too  novel  and  adven- 
turous an  idea,  foreign  in  character  and  unadaptable 
to  American  conditions,  and  therefore  a  plan  of 
failure  and  disaster  and  ominous  consequences. 
Again,  the  elections  at  large  will  be  the  means  of 
slighting  special  localities  and  favoring  others  un- 
duly, while  the  old  method  of  having  a  section  or 
ward  represented  by  a  special  resident  of  that  dis- 
trict insured  protection  for  his  ward  and  equal 
share  in  all  good  things.     The  history  of  the  ward 


264  THE    CITY   MANAGER 

system  presents  to  this  proposition  an  embarrassing 
counter-argument;  the  long  years  of  corruption  and 
"log-rolling"  for  special  favors  by  each  councilman, 
and  the  disheartening  lack  of  results  would  even 
justify  a  more  desperate  defense  than  this  salutary 
remedy  of  general  elections.  It  is  suggested  that 
the  salaries  are  too  high  and  that  talent  sufficient 
for  the  duties  can  be  had  at  much  lower  rates.  If 
time  proves  that  economy  is  effected  by  employ- 
ing high-salaried  men,  and  it  will  not  take  a  great 
while  to  determine  it,  then  this  argument  will  be 
relegated  to  the  company  of  its  predecessors.  So 
run  arguments  and  counter  arguments. 

The  special  advantages  of  the  Springfield  (Ohio) 
charter  are  set  forth  by  their  charter  commission 
as  follows : 

i.  It  secures  Home  Rule  for  Springfield. 

2.  It  establishes  a  simple,  direct  and  businesslike 
form  of  government. 

3.  It  makes  elective  officers  responsive  to  pub- 
lic opinion  by  means  of  the  initiative  and  referen- 
dum. 

4.  It  provides  for  direct  primaries  and  a  non- 
partisan ballot. 

5.  It  prohibits  candidates  from  soliciting  office 
by  improper  methods. 

6.  It  affords  to  capable  men  the  opportunity  of 


ADVANTAGES    AND    DISADVANTAGES    265 

holding  office  during  good  behavior,  thus  tending 
to  the  development  of  trained  public  servants. 

7.  It  furnishes,  through  the  recall,  a  simple 
method  of  removing  inefficient  or  corrupt  officials. 

8.  It  requires  public  hearings  upon  money  appro- 
priations. 

9.  It  secures  full  publicity  of  official  acts,  yet 
eliminates  wasteful  methods  of  legal  advertising. 

10.  It  creates  a  purchasing  department  which  will 
effect  great  saving  in  the  purchase  of  supplies. 

11.  It  permits  public  work  to  be  done  by  direct 
labor  as  well  as  by  contract. 

12.  It  fixes  eight  hours  as  a  day's  labor  upon 
public  work. 

13.  It  safeguards  the  city  in  franchise  matters. 

14.  It  offers  a  means  of  avoiding  much  un- 
necessary tearing  up  of  streets  for  service  connec- 
tions. 

15.  It  recognizes  the  people  as  the  sole  source 
of  governmental  power  and  imposes  upon  each 
member  of  the  community  the  duty  and  responsi- 
bility of  actively  interesting  himself  in  the  affairs 
of  the  city. 

The    Research    Bureau    claims    the    hereinafter 
enumerated   advantages    for   the    Dayton    (Ohio) 
charter : 
■  1.  A  continuous  audit  of  city  accounts,  with  a 


266  THE   CITY   MANAGER 

general  balance  sheet  exhibiting  assets  and  liabil- 
ities of  the  city. 

2.  The  requirement  of  summaries  of  city  income 
and  expenditure  rather  than  of  receipts  and  ex- 
pense. 

3.  Accounting  procedure  adequate  to  record  in 
detail  all  transactions  affecting  the  acquisition,  cus- 
todianship and  disposition  of  values. 

4.  A  scientific  budget  classified  uniformly  for  the 
main  functional  divisions  of  all  departments. 

5.  Standardization  and  centralized  purchasing 
of  all  supplies. 

6.  Time  sheets  and  certification  of  all  payrolls. 

7.  Current  financial  and  operating  statements  ex- 
hibiting each  transaction  and  the  cost  thereof. 

8.  Adequate  franchise  control. 

9.  Citizen-boards  to  consult  and  advise  with  the 
various  departments. 

10.  Standardization  of  service  and  compensation, 
insuring  equal  pay  for  equal  work  in  every  branch 
of  the  city  government. 

CONCLUSION 

The  foregoing  arguments  pro  and  con  are  pre- 
sented as  they  appeared  in  the  campaigns  for  the 
new  municipal  organizations.     They  are  the  devel- 


ADVANTAGES   AND    DISADVANTAGES    267 

opment  of  much  political  struggle,  a  wide  movement 
of  reform,  a  deep-seated  sense  of  unrest.  Their 
value  rides  on  their  face  and  they  are  designed  to 
appeal  to  the  same  class  who  read  this  chapter — 
the  voters. 


APPENDIX  A 

CITY  GOVERNMENT   BY  COMMISSION 

A  Report  of  the  National  Municipal  League 

The  committee  finds  itself  in  agreement  on  the  fol- 
lowing interpretations  of  features  of  commission  gov- 
ernment : 

Major  Features 

i.  Commission  government  is  a  relative  succ-ess 
as  compared  with  the  older  forms.  The  people  who 
live  under  it  are  generally  more  content.  They  feel 
that  they  are  more  effective  politically  and  that  com- 
mission government  is  an  asset  to  their  town.  Sub- 
stantial financial  improvements  have  generally  resulted, 
demonstrating  a  striking  increase  in  efficiency  and  a 
higher  standard  of  municipal  accomplishment,  and  this 
may  fairly  be  credited  to  the  better  working  of  the  new 
plan. 

2.  This  relative  success  of  commission  government 
268 


APPENDIX   A  269 

results  primarily  because  it  is  more  democratic  (i.  e., 
sensitive  to  public  opinion)  than  the  old  form.  Among 
the  features  which  undoubtedly  are  responsible  for 
this  increased  sensitiveness  are 

a.  Its  "unification  of  powers,"  as  contrasted  with 
the  old  undesirable  "separation  of  powers."  The 
commission,  having  all  the  power,  has  no  one  to 
blame  for  failure  to  please  the  public,  cannot  evade 
full  responsibility,  and,  having  ample  power  to  rem- 
edy each  abuse,  can  be  held  responsible  for  any 
failure  to  do  so.  This  stripping  away  of  the  old- 
time  protective  confusion  of  responsibility  exposes 
the  commission  to  the  direct  fire  of  public  opinion 
and  makes  its  members  personally  targets  for  public 
criticism.  The  unification  of  powers  unifies  the 
whole  governmental  system,  gives  the  govern- 
ment the  single  controlling  brain  which  is  neces- 
sary to  a  successful  organism,  prevents  lost  mo- 
tion, "pulling  and  hauling,"  deadlocks,  and  ill  feel- 
ing. 

b.  The  short  ballot.  This  makes  each  elective 
official  conspicuous  on  election  day  and  after ;  makes 
intelligent  voting  so  easy  that  practically  every  citi- 
zen can  vote  intelligently  without  any  more  conscious 
effort  than  he  expended  on  his  business  of  citizen- 


270  THE   CITY   MANAGER 

ship  under  the  old  plan.  The  short  ballot  simplifies 
the  whole  work  of  citizenship  so  much  that  the 
citizens  can  handle  their  political  affairs  without 
employing  a  political  machine  as  an  intermediary 
political  instrument.  The  short  ballot  in  small  cities 
makes  the  politician  and  his  machine  superfluous, 
and  thereby  substitutes  for  the  old  oligarchy  of  po- 
litical experts  a  democracy  in  which  the  entire  popu- 
lace participate. 

Being  acutely  sensitive  and  therefore  anxious  to 
please,  commission  government  has  been  giving  the 
people  better  government  because  the  people  are  and 
always  have  been  ready  to  applaud  honest  and  pro- 
gressive government.  A  contributing  factor  un- 
doubtedly is  the  fact  that  the  radical  change  has 
usually  awakened  a  fresh  civic  interest  among  the 
citizens,  which  runs  along  of  its  own  momentum  for 
a  considerable  time  and  does  much  to  tone  up  every 
branch  of  administration. 

Commission  government  could  reasonably  be  ex- 
pected to  succeed  with  these  features  (unification  of 
powers  and  the  short  ballot)  alone,  and  no  new  city 
charter  should  ever  be  classified  as  true  commission 
government  which  lacks  these  essentials. 


APPENDIX   A  271 

Other  Features 

3.  Non-partisan  ballot.  The  non-partisan  method 
of  election  is  highly  desirable,  but  not  absolutely  in- 
dispensable, as  the  short  ballot,  by  making  the  party 
label  a  superfluous  convenience,  thereby  destroys  much 
of  the  label's  influence,  anyway. 

4.  The  initiative  and  referendum-by-protest  have 
proved  useful  as  provisions  for  allaying  the  time- 
honored,  popular  fear  of  intrusting  large  powers  to 
single  bodies.  The  sensitiveness  of  commission  gov- 
ernment reduces  the  necessity  for  these  devices  and 
instances  of  their  use  in  commission  governed  cities 
are  very  uncommon.  It  should  not  be  forgotten  that 
Galveston  and  Houston,  the  first  two  cities  to  have  the 
plan,  made  their  success  without  these  features.  They 
have  not  proved  dangerous  or  susceptible  to  misuse. 

5.  The  recall  is  a  desirable,  but  not  indispensable 
extension  and  modification  of  the  right  to  elect.  We 
have  no  evidence  that  it  has  been  misused.  In  several 
cases  it  seems  to  have  been  employed  to  good  advan- 
tage. Under  the  sensitive  commission  plan  it  is  less 
needed  than  with  the  old  plan,  and  is  more  practical. 

6.  The  abolition  of  zvard  lines  is  desirable  in  small 
cities,  and  has  been  generally  welcomed  as  putting  an 


2-?2  THE-  CITY   MANAGER 

end  to  numerous  petty  abuses.  It  tends  to  prevent 
petty  log-rolling  and  emphasizes  the  unity  of  the  city. 
Its  importance,  however,  has  been  generally  overesti- 
mated, for  there  are  many  cities  (Galveston,  before 
the  flood,  being  one)  where  ward  lines  have  been  abol- 
ished without  developing  any  appreciable  or  perma- 
nent reform. 

7.  It  is  unsound,  and  therefore  unwise,  to  make  the 
commission  auditor  of  its  own  accounts.  This  does 
not  necessarily  involve  the  independent  election  of  a 
city  auditor  in  all  cities.  Some  authority,  such  as  the 
Governor,  could  appoint  a  state  officer  with  power  to 
investigate  the  accounts  of  all  cities  and  to  make  his 
reports  public.  This  is  in  line  with  the  National  Mu- 
nicipal League's  familiar  demand  for  uniform  munici- 
pal accounting  and  reporting. 

8.  It  is  unsound  to  give  the  commission  control  over 
the  civil  service  commission,  as  in  Des  Moines,  unless 
the  civil  service  commission  be  given  a  protected  and 
long  tenure  of  office  and  rotation  of  appointment.  The 
civil  service  commission  might  better  be  appointed  by 
some  remote  authority,  such  as  the  Governor. 

9.  Mayor's  veto.  It  is  doubtful  whether  the  mayor 
should  have  a  veto  over  his  confreres,  or,  in  fact,  any 
added  powers,  lest  he  overshadow  the  other  commis- 


APPENDIX   A  273 

sioners  and  attract  the  limelight  at  their  expense,  leav- 
ing them  in  obscurity,  where  the  people  cannot  intelli- 
gently and  justly  criticize  and  control  them. 

Applicability  to  Different  Sized  Cities 

10.  Commission  government  is  in  general  to  be  rec^\ 
ommended  for  cities  of  100,000  population  and  under,  \ 
and  possibly  also  for  cities  of  much  larger  size,  in 
preference  to  any  other  plan  now  in  operation  in  any  / 
American  city.  ' 

The  maximum  size  which  may  wisely  adopt  the  com- 
mission plan  without  any  modification  cannot  as  yet 
be  established,  as  too  few  large  cities  have  tried  it. 

The  foregoing  represents  matters  on  which  the 
whole  committee  substantially  agree. 

The  following  are  questions  on  which  the  comA 
mittee  did  not  agree  and  as  practically  all  our  work  j 
was  done  by  correspondence  it  was  impossible  foj/ 
the  members  to  reason  with  each  other  and  reach  a 
conclusion.     These  matters  are  therefore  submitted 
without  conclusions   in   the   form  of   subjects   for 
further  debate  with  a  brief  for  each  side. 

11.  Should  the  clcction-at-largc  feature  be  re- 
tained in  the  case  of  very  large  cities? 


274  THE   CITY   MANAGER 

Yes.  The  abolition  of  the  ward  system  in  Bos- 
ton brought  excellent  results  in  the  composition  of 
the  council  and  is  credited  with  having  accomplished 
more  in  the  way  of  breaking  down  the  influence 
of  the  machine  than  any  other  feature  of  the  new 
charter. 

filo.     As  the  size  of  an  electorate  increases,  the 
expense  and  difficulty  of  conducting  campaigns  for 
fthe  office  increases  also,  until  they  reach  a  scale 
'  where  individual  candidatures  are  balked  and  the 
support  of  an  experienced  political  machine,  as  con- 
trasted with  that  of  a  newly  improvised  machine, 
\becomes  so  important  to  the  success  of  a  candidate 
as  to  give  to  existing  machines  a  safe  option  in 
tne  choice  of  hopeful  candidates.     Officials  when 
elected  will  thus  be  indebted  to  the  machine,  and 
the  machines  share  with  the  people  in  the  control 
over  the  government  which  ought  to  belong  to  the 
people  alone.     If  machines  are  to  be  abolished  as 
influences    in    municipal    politics,    their    monopoly 
must  be  broken  and  free  competition  established, 
and  this  can  only  be  done  by  creating  conditions 
under  which  electioneering  machinery,  adequate  for 
the  task,  can  be  improvised  in  case  the  established 
organizations  are  insufficiently  deferential  to  public 
'  opinion.    For  large  cities,  therefore,  the  commission 
\plan  should  be  changed  to  something  more  like  the 


APPENDIX   A  275 

English  or  German  plan  of  government  by  a  ward-\ 
elected  council  of  popular  representatives,  or  pos- 
sibly a  plan  of  proportional  representation  could  be  / 
worked  that  would  be  better  yet.    The  requirement 
of  residence  in  the  district  should  be  abolished.    / 

12.  Should  the  size  of  the  commission  be  rad- 
ically enlarged  in  the  case  of  very  large  cities? 

Yes.  Five  men  are  too  few  to  represent  the 
varied  elements  of  a  great  population  and  will  be 
too  far  from  the  people  to  be  able  to  analyze  public 
opinion  by  direct  contact.  The  commission  should 
therefore  be  enlarged  but  in  a  manner  which  will 
retain  the  short  ballot.  For  moderate-sized  cities, 
the  choice  of  only  a  part  of  the  commission  at  a 
time  would  help,  but  in  the  larger  cities  a  subdi- 
vision of  the  people  by  ward  divisions  or  propor- 
tional representation  seems  advisable. 

That  a  large  body  is  not  fitted  for  executive  work 
is  admitted  (though  such  government  succeeds  in 
British  cities),  but  the  executive  function  can  be 
delegated  to  a  compact  appointive  committee,  or, 
better,  to  an  appointive  chief  executive  as  in  Ger- 
man cities  and  in  the  so-called  "Lockport  (N.  Y.) 
Plan." 

No.  The  existence  of  the  initiative,  referendum 
and  recall  would  be  sufficient  to  keep  any  city  gov- 
ernment in  touch  with  popular  opinion. 


276  THE   CITY   MANAGER 

The  business  of  city  government  is  almost  wholly 
executive.  The  commission  should  therefore  be  an 
executive  body  first  and  last. 

The  theory  that  for  very  large  cities  the  com- 
mission should  be  enlarged  is  erroneous,  since  based 
on  the  belief  that  the  greater  the  number  of  men 
the  better  the  representation,  which  does  not  follow. 
The  enlargement  of  the  commission  is  incompatible 
with  the  short  ballot,  unnecessary  beyond  seven  or 
nine  members  and  preferably  five  or  less,  and  tends 
toward  the  same  confusion  and  irresponsibility  so 
prevalent  under  the  present  council  system. 

13.  Should  the  individual  commissioners  each  be 
executive  heads  of  departments? 

Yes.  This  feature  is  incidental  to  the  "unifica- 
tion of  powers"  and  a  method  of  combining  legis- 
lative and  administrative  control  in  the  same  body. 
Under  many  charters  the  commission  is  the  legis- 
lative body,  and  individually  the  members  of  the 
commission,  being  each  the  head  of  a  department, 
constitute  the  administrative  force.  The  commis- 
sion is  not  a  body  of  experts  but  a  board  of  general 
managers  whose  oversight  and  general  direction  is 
required,  but  who  are  to  hire  the  experts  and  tech- 
nical men  for  the  various  positions  needed.  It  is 
not  essential  that  the  commission  should  be  a  true 
reflection  of  the  population ;  but  it  is  important  that 


APPENDIX   A  277 

they  (the  commission)  act  for  the  entire  popula- 
tion and  represent  it  in  the  sense  of  looking  after 
the  welfare  of  the  whole  city.  An  advisory  board 
consisting  of  laboring  men,  reformers,  business 
men,  some  women,  and  all  the  other  elements  of 
the  population  might  be  a  desirable  help  to  a  city 
governing  body  in  formulating  its  course  of  action; 
but  the  real  work  must  be  done  by  a  few  men  and 
these  should  be  the  commission. 

There  is  no  more  danger  of  intrusting  the  indi- 
vidual commissioner  with  the  carrying  out  of  the 
will  of  his  confreres  on  the  commission  than  of 
trusting  the  president  of  a  corporation  to  carry  out 
the  will  of  the  board  of  directors  of  which  he  is  a 
voting  member. 

No.  The  feature  of  the  usual  plan  which  makes 
the  elected  officers  administrative  heads  is  unsound 
(except  in  the  smallest  cities  where  the  communal 
work  is  of  so  simple  a  nature  that  it  may  safely  be 
intrusted  to  any  man  of  general  common-sense). 
Where  the  city  work  is  considerable  and  technical, 
the  requirements  that  elective  officers  shall  be  com- 
petent to  perform  executive  duties  is  a  denial  of 
accurate  representation  to  many  large  classes  of  the 
community,  for  the  requirements  practically  attempt 
to  limit  the  people  to  the  selection  of  members  of 
the  employer  class.    Experts  and  executives  cannot 


278  THE   CITY   MANAGER 

be  effectively  selected  by  popular  vote,  and  their 
choice  is  not  a  natural  popular  function.  The  in- 
terest of  the  people  is  in  representation.  The  com- 
mission should  be  a  true  reflection  of  the  popula- 
tion. In  a  city  with  a  large  laboring  class,  the 
commission  should  contain  a  due  proportion  of 
laboring  men,  and  in  the  natural  desire  for  such 
representation  the  people  will  elect  such  men  any- 
way regardless  of  their  unfitness  by  experience  for 
large  administrative  work. 

A  list  of  commission-governed  cities  of  over 
25,000  population  follows.  There  are,  in  addition, 
many  more  commission-governed  towns  of  less 
than  25,000  population.  The  total  population  living 
under  commission  government  June  1,  19 14,  is 
7,705,735. 

Commission-Governed  Cities  Over  25,000 
Population 

Alabama Birmingham,  Mobile,  Montgom- 
ery. 

California. ....  .Berkeley,  Oakland,  Pasadena,  Sac- 
ramento, San  Diego. 

Colorado. .....  Colorado  Springs,  Denver. 

Illinois Bloomington,       Decatur,       Elgin, 

Springfield. 


APPENDIX   A  279 

Iowa.... Burlington,     Cedar    Rapids,     Des 

Moines,  Sioux  City. 

Kansas Kansas  City,   Topeka,   Wichita. 

Kentucky Covington,  Lexington,  Newport. 

Louisiana New  Orleans,  Shreveport. 

Massachusetts ..  Haverhill,  Lawrence,  Lowell, 
Lynn,  Salem,  Taunton. 

Michigan Battle  Creek,  Saginaw. 

Minnesota Duluth,  St.  Paul. 

Missouri Joplin. 

Nebraska. ....  .Lincoln,  Omaha. 

New  Jersey Atlantic  City,  Jersey  City,  Orange, 

Passaic,  Trenton. 

North  Carolina .  Wilmington. 

Ohio Dayton,  Springfield. 

Oklahoma Muskogee,  Oklahoma  City. 

Oregon Portland. 

Pennsylvania ...  Allentown,  Altoona,  Chester,  Eas- 
ton,  Erie,  Harrisburg,  Hazleton, 
Johnstown,  McKeesport,  New 
Castle,  Reading,  Wilkesbarre, 
Williamsport,  York. 

South  Carolina .  Columbia. 

Tennessee Chattanooga,  Knoxville,  Memphis, 

Nashville. 

Texas Austin,  Dallas,  Fort  Worth,  Gal- 
veston, Houston,  San  Antonio. 


28o  THE   CITY   MANAGER 

Utah Ogden,  Salt  Lake  City. 

Washington ....  Spokane,  Tacoma. 
West  Virginia.  .Huntington. 
Wisconsin Oshkosh,  Superior. 


APPENDIX    B 

CITIES  UNDER  THE   CITY   MANAGER  PLAN 
JUNE  i,   1914 

Adopted        Population 

Sumter,  S.  C 6/12/12 8,109 

Hickory,  N.  C —   4/ — /13 3,7*6 

Morganton,  N.  C 4/ — /13 2,712 

Dayton,  Ohio 8/12/13 1 16,577 

Springfield,  Ohio 8/26/13 46,921 

La  Grande,  Ore 10/1/13 4,843 

Phcenix,  Ariz 10/10/13 n,I34 

Morris,  Minn 1 1/ — /13 1,685 

Amarillo,  Texas .11/18/13 14485 

Terrell,  Texas 11/ — /13 7,05° 

Cadillac,  Mich 1 2/9/1 3 8,375 

Manistee,  Mich 12/15/13 12,381 

Montrose,  Colo 1/ — /14 3,254 

Abilene,  Kans  .  - 4,1 18 


APPENDIX    C 

SOME  ACID  TESTS   OF   CITY   MANAGER   GOV- 
ERNMENT FROM  THE  FIRST  NINETY 
DAYS  OF  OPERATION 

(Dayton  Bureau  of  Municipal  Research) 

Jan.  3. — Began  the  installation  of  an  accounting 
system  adequate  to  provide  balance  sheets  of  all 
city  accounts,  and  provide  exact  control  over 
public  funds. 

Jan  5. — Resolution  limiting  city  expenditures  to 
within  actual  revenues. 

Jan.  8. — Provided  for  the  purchasing  of  all  city 
supplies  by  a  central  purchasing  agent. 

Jan.  13. — Engineering  firm  engaged  to  make  sur- 
vey of  needs,  and  to  recommend  steps  necessary 
to  secure  an  adequate  water  supply.  Blowing  new 
wells  and  tying  them  into  water  supply. 

Jan.   14. — Weekly  school  for  policemen  started,  giv- 
ing instruction  in  ordinances  and  character  of  du- 
ties; target  practice  and  duels. 
282 


APPENDIX   C  283 

Jan.  16. — Civic  workers'  league  formed  to  secure 
the  cooperation  of  children  in  a  city-wide  clean- 
up. 

Jan.  17. — Consulting  engineers  employed  to  inves- 
tigate best  means  to  dispose  of  garbage  and 
refuse. 

Jan.  18. — Commission  appointed  to  organize  sum- 
mer baseball  leagues  among  school  boys. 

Jan.  19. — Began  periodic  flushing  of  downtown 
streets. 

Jan.  22. — Duties  of  a  city  complaint  station  ex- 
tended to  include  complaints  of  every  character. 

Jan.  23. — Collection  of  ashes  and  rubbish  resumed, 
after  year  of  non-collection  throughout  the  city. 

Jan.  26. — Held  first  public  hearing  on  the  estimates 
of  city  expenditures. 

Jan.  27. — Began  fire  prevention  inspection  of  every 
residence  and  store  building  in  Dayton. 

Jan.  29. — Adequate  clothing,  shoes,  socks,  etc.,  sup- 
plied to  prisoners  in  the  workhouse. 

Jan.  29. — Five  district  city  physicians  appointed 
for  gratuitous  service  to  those  unable  to  pay. 

Jan.  30. — Suggested  and  brought  about  the  raising 
of  funds  by  the  women  members  of  the  Greater 
Dayton  Association,  for  a  survey  of  dependency, 
delinquency  and  kindred  problems. 

Feb.   1. — Secured  thorough  snow  removal  on  down- 


284  THE   CITY   MANAGER 

town  streets  and  directed  police  officers  to  require 
cleaning  of  sidewalks  by  householders. 

Feb.  2. — Arranged  to  provide  work  for  such  needy 
cases  as  would  be  referred  to  the  city  by  Asso- 
ciated Charities. 

Feb.  6. — Commission  named  to  draft  a  building 
code. 

Feb.   io. — Municipal  lodging  house  established. 

Feb.  12. — Conference  with  railroad  executives  and 
agreement  to  minimize  crossing  blockades — street 
railway  company  reporting  daily  of  crossing 
delays. 

Feb.  15. — Street-car  companies  offer  better  ventila- 
tion of  street-cars. 

Feb.  16. — City  commission  passed  first  city  budget 
to  show  salaries  and  costs  in  detail,  and  to  group 
expenses  according  to  uniform  classification. 

Feb.  17. — Conference  with  health  officers  of  Miami 
Valley  to  promote  efficient  control  of  communi- 
cable diseases  and  clean  milk  supply. 

Feb.  17. — Civic  music  league  inaugurated.  Choral 
societies  being  formed  in  the  several  parts  of  the 
city. 

Feb.  20. — Commission  appointed  to  revise  and 
bring  up  to  date  the  traffic  ordinances  of  the  city. 

Feb.  21. — Free  legal  aid  bureau  formed  to  give 
advice  to  citizens  unable  to  employ  an  attorney. 


APPENDIX   C  235 

Feb.  24. — Seven  additional  patrolmen  added  to  po- 
lice force  to  patrol  residence  districts  during  the 
day. 

Feb.  25. — Arranged  for  inauguration  of  "police- 
women" service. 

Feb.  26. — Unification  of  the  visiting  nurses  of  the 
city  under  the  direction  of  the  welfare  depart- 
ment. 

Mar.  1. — Upon  request,  street-car  companies 
employ  permanent  switch  tenders  at  central 
street  intersections,  to  facilitate  traffic  move- 
ment. 

Mar.  4. — Interested  boy  scouts  in  leading  clean-up 
movement,  organized  play  and  garden  develop- 
ment. 

Mar.  6. — Work  of  the  Playgrounds  and  Gardens 
Association  united  with  the  park  and  playground 
activities  of  the  city. 

Mar.  14. — Free  baby  clinic  at  office  of  the  division 
of  health  established. 

Mar.   16. — Free  baby   clinic  established  at  Miami 

Valley  and  St.  Elizabeth  hospitals. 
Mar.   18. — City  secures  vacant  lots  for  those  desir- 
ing gardens,   and  arrangements  made   for   free 
plowing. 
Mar.  20. — First  bi-monthly  meeting  with  dairymen 
held  to  promote  safer  milk  supply. 


286  THE   CITY   MANAGER 

Mar.  20. — Began  rigid  enforcement  of  traffic  ordi- 
nance— "Safety  first." 

Mar.  26. — School  of  :nstruction  for  playground 
leaders  opened. 

Alar.  28. — Authorized  the  appointment  of  a  Civic 
Plan  Commission  to  pass  on  platting,  and  recom- 
mend plans  for  civic  improvements. 

Mar.  28. — Authorized  the  appointment  of  a  com- 
mission on  the  renaming  and  renumbering  of 
streets. 

Mar.  30. — Began  publicity  on  anti-fly  and  reduction 
of  infant  mortality  campaign. 

Mar.  30. — Adopted  new  uniforms  and  standards 
for  the  division  of  police. 

Mar.  31. — Installed  unit  cost  system  on  rubbish  and 
ash  removal,  and  garbage  collection. 

Mar.  31. — Began  installation  of  unit  cost  system  on 
livestock  in  division  of  fire. 

Apr.  1. — Began  installation  of  unit  cost  system  in 
the  municipal  garage. 

Apr.  4. — Installed  unit  cost  system  in  city  prison, 
municipal  lodging  house,  and  workhouse. 


APPENDIX    D 

This  was  the  form  of  pledge  used  to  affiliate  the 
Dayton  voter  with  the  charter  movement : 

PLEDGE  CARD 

I  want  a  city  government  that  provides  the  INI- 
TIATIVE, REFERENDUM,  PROTEST  and 
RECALL. 

I  want  a  commission  of  five  citizens  to  legislate 
for  Dayton  under  those  restrictions. 

I  want  the  Commission  to  pick  out  for  Dayton 
the  best  man  that  can  be  found  as  manager. 

I  want  a  Manager  to  be  subject  to  recall  and 
able  to  get  one  hundred  cents'  worth  of  service  for 
every  dollar  expended. 

I  want  the  non-partisan  ballot  and  a  city  govern- 
ment free  from  machine  domination. 

I  PLEDGE  myself  to  speak  and  work  for 
the  adoption  of  the  COMMISSION-MANAGER 
PLAN  of  government  in  DAYTON. 

Name 

Address 

287 


288  THE   CITY    MANAGER 

And  this  is  the  way  that  voter  was  kept  track 
of  for  the  elections : 

PRECINCT   CARD 


Name 

Address 

Politics 

Is  he  for  the  new  charter  ? . .  . .  Yes No , 

Where  employed 

Has  he  registered? 

Report  made  by 

Date. Ward . . .  .Prec 


APPENDIX    E 
BIBLIOGRAPHY 

Explanatory  Comment. — The  National  Municipal 
League  Report  on  "The  Commission  Plan  and  Com- 
mission-Manager Plan  of  Municipal  Government" 
says  of  the  sources  of  information  on  these  sub- 
jects : 

"The  history  of  the  movement  is  well  described 
in  Bradford's  'Commission  Government  in  Ameri- 
can Cities,'  and  Hamilton's  'Dethronement  of  the 
City  Boss.'  A  symposium  of  the  comments  of 
various  authoritative  observers  will  be  found  in 
Woodruff's  'City  Government  by  Commission.' 
Analyses  of  all  the  charters,  together  with  the  texts 
of  the  more  significant  ones,  and  other  material 
suitable  for  the  use  of  charter  revision  committees, 
will  be  found  in  Beard's  'Digest  of  Short-Ballot 
Charters,'  a  loose-leaf  encyclopedia  on  the  subject. 
The  most  thorough  study  of  the  administrative 
workings  of   commission   government  is   Bruere's 

289 


29o  THE   CITY   MANAGER 

The  New  City  Government/  comprising  intensive 
examinations  by  representatives  from  the  New 
York  Bureau  of  Municipal  Research.  Literature 
for  local  campaigns  for  the  adoption  of  the  plan  is 
obtainable  from  the  National  Short  Ballot  Organi- 
zation in  New  York." 

Activities  of  the  Board  of  Public  Welfare.  Issued 
by  Kansas  City,  Mo.,  Board  of  Public  Wel- 
fare, 19 1 3. 

Baxter,  Sylvester.  Berlin:  A  Study  of  Munici- 
pal Government  in  Germany.  Salem  Press 
Publishing  and  Printing  Co.,  1889. 

Bradford,  Ernest  S.  Commission  Government  in 
American  Cities.    Macmillan,  191 1. 

Bruere,  Henry.  The  New  City  Government.  Ap- 
pletons,  19 1 2. 

League  of  American  Municipalities:  Proceedings. 
Detroit,  191 1. 

Munro,  W.  B.  The  Government  of  European 
Cities.    Macmillan,  1909. 

Organization  and  Administration  of  the  Depart- 
ment of  Health  of  Dayton,  Ohio.  Dayton 
Bureau  of  Municipal  Research,  1913. 

Shaw,  Albert.  Municipal  Government  in  Eng- 
land.   Johns  Hopkins  University,  1888. 

The  Sumter  "City  Manager"  Plan  of  Municipal 


APPENDIX  E  291 

Government.     Published  by  The  Chamber  of 
Commerce  of  Sumter,  S.  C,  Feb.,  1913. 


Magazine  Articles 

American  City.  "The  Lockport  Proposal :  A  City 
That  Wants  to  Improve  Commission  Govern- 
ment."   June,  191 1. 

"How  a  Little  City  Is   Progressing  Under  a 
City  Commissioner."    July,  1913. 

American  Review  of  Reviews.  "Progress  of  the 
City  Manager  Plan."    Feb.,  1914. 

Annals  of  the  American  Academy  of  Political 
and  Social  Science.  "The  Lockport  Pro- 
posal," by  F.  D.  Silvernail.  Nov.,  191 1, 
xxxviii,  No.  3. 

Annals  of  the  American  Academy  of  Political 
and  Social  Science.     May,  1912,  xii. 

Engineering  News.  "The  City  Manager  Plan." 
May  13,  1913. 

Literary  Digest.  "Dayton's  Unique  Charter." 
Aug.  30,  1913. 

Municipal  Journal  and  Engineer.     "Dayton's 
New  Government."    Aug.  21,  191 3. 
"Springfield's   New   Government."      Sept.    18, 

1913. 
National  Municipal  Review.     "The  Theory  of 


292  THE  CITY  MANAGER 

the  New  Controlled  Executive  Plan,"  by  Rich- 
ard S.  Childs.    Jan.,  1913. 
'The  Vital  Points  in  Charter  Making  from  a 
Socialist  Point  of  View,"  by  Carl  D.  Thomp- 
son.   July,  1913. 

"The  City  Manager  Plan,"  by  L.  D.  Upson. 
Oct.,  1913. 

The    Outlook.      "The    Practical    Short    Ballot." 
May  10,  1913. 
"The  City  Manager  Plan."    Aug.  23,  191 3. 

The  Public.  "The  Municipal  Business  Manager." 
June  27,  1913. 

The  Short  Ballot  Bulletin.  The  bi-monthly 
organ  of  the  National  Short  Ballot  Organiza- 
tion notes  the  progress  of  the  City  Manager 
plan  in  each  issue. 

World's  Work.  "Progress  of  Simplified  Munici- 
pal Government."    June,  1913. 

List  of  References  on  the  City  Manager  Plan  Fur- 
nished by  Courtesy  of  Library  of  Congress, 
Division  of  Bibliography,  December 
ist,  1914 

H.  H.  B.  Mayer,  Chief  Bibliographer 

1.  American  Academy  of  Political  and  Social  Sci- 
ence, Philadelphia.  Commission  govern- 
ment and  the  city-manager  plan;  rev.  ed.  of 


APPENDIX   E  293 

Commission  government  in  American  cities. 
Philadelphia,  American  academy  of  political 
and  social  science,  1914.  279  pp.  (Its  An- 
nals.)    Hi.  A4,  v. 

2.  Beard,  Charles  A.,  ed.  Digest  of  short  ballot 

charters.      A   documentary   history   of   the 
Commission  form  of  municipal  government. 
New  York.     Published  by  the  Short  Ballot 
organization   (1911-     ),  pp.   10001-91101. 
"Definition  of  the  'City  manager  plan'  " : 
pp.  10203-10204;  City  manager  plan  with 
proportional    representation,    by    C.     C. 
Hoag,    pp.    2 1305-2 13 10;    City   manager 
plan  to  date,  by  H.   S.   Gilbertson,   pp. 
2 1903-2 1906;   Theory   of   the   new   con- 
trolled   executive    plan,    by    Richard    S. 
Childs,  pp.  2 1907-2 1910.    JS342.B4. 

3.  Bureau    of    Municipal    Research,    Dayton,    O. 

Shall  we  change  our  city  government?  A 
statement  of  three  types  of  municipal  gov- 
ernment. (Federal  plan — Commission  plan 
— Commission-Manager  plan.)  Dayton,  O., 
Bureau  of  municipal  research  (19 13),  16  pp. 
JS805.3   1913. 

4.  Upson,  Lent  D.   A  charter  primer.    Dayton,  O., 

Bureau  of  municipal  research  (1914),  24  pp. 
City  Manager  plan :  pp.  8-1 1.    JS805.3U7. 


294  THE   CITY   MANAGER 

5.  Woodruff,  Clinton  R.,  cd.  City  government  by 

commission.  New  York,  London,  D.  Apple- 
ton  and  company,  191 1.  381pp.  (National 
municipal  league  series,  v.  I.)    JS342.W7. 

General  manager  for  the  city  of  Staunton, 

Va. :  pp.  304-306. 

Articles  in  Periodicals 

6.  1913.     Childs,  Richard  S.     Theory  of  the  new 

controlled-executive.  National  municipal  re- 
view, Jan.,  1913,  v.  2  :  76-81.    JS39.N3,  v.  2. 

7.  Hoag,  C.  G.    The  representative  council  plan  of 

city  government :  The  city  manager  plan  im- 
proved by  the  applications  of  proportional 
representation  to  the  election  of  the  council. 
American  city,  Apr.,  1913,  v.  8:  373-380. 
HT101.A5,  v.  8. 

8.  Gilbertson,  H.  S.    Public  administration :  a  new 

profession.  American  review  of  reviews, 
May,  1913,  v.  47:  599-602.    AP2.R4,  v.  47. 

9.  Practical    short    ballot    in    Sumter.      Outlook, 

May  10,  1913,  v.  104:  50-51.  AP2.08,  v.  104. 
10.  The  growth  of  the  city  manager  plan  of  munici- 
pal government.  Engineering  and  contract- 
ing. May  21,  1913,  v.  39:  565-566. 
TA201.E5,  v.  39. 


APPENDIX    E  295 

11.  Progress    of    simpler    municipal    government. 

World's  work,  June,  1913,  v.  26:236-237. 
AP2.W8,  v.  26. 

12.  Embrey,  A.  T.    How  a  little  city  is  progressing 

under  a  city  commissioner:  Fredericksburg, 
Va.    American  city,  July,  1913,  v.  9:  25-27. 
HT101.A5,  v.  9. 
,13.  City  manager  plan.     Outlook,  Aug.  23,  1913, 
v.  104:  887-889.    AP2.08,  v.  104. 

14.  Upson,  L.  D.     The  city  manager  plan  of  gov- 

ernment for  Dayton.  National  municipal  re- 
view, Oct.,  1913,  v.  2:  639-644.  JS39.N3, 
v.  2. 

15.  Dayton's    step    forward    in    city    government. 

World's  work,  Oct.,  1913,  v.  26:  614. 
AP2.W8,  v.  26. 

16.  Holden,  A.  M.     Progress.     American  political 

science  review,  Nov.,  1913,  v.  7P:  653-655. 
JA1.A6,  v.  7. 

17.  Riddle,  Kenyon.     The  town  manager  as  city 

engineer.     American  city,  Dec,  1913,  v.  9: 

523-525.    HT101.A5,  v.  9. 
,18.  Further  comment  on  the   possibilities   of  the 

city  manager  plan  in  municipal  government. 

Engineering  and  contracting,  Dec.  31,  1913, 

v.  40:  729.    TA201.E5,  v.  40. 
19.  Baker,  Frederick.    The  commission  plan  vs.  the 


296  THE   CITY   MANAGER 

municipal  business  manager  plan.  Pacific 
municipalities,  Dec,  1913,  v.  2j\  669-681. 
JS39.P3,  v.  27. 

20.  Wilder,  E.  M.     Commission  and  commission- 

manager  forms  contrasted.  Pacific  munici- 
palities, Dec,  1913,  v.  27:  689-693.  JS39.P3, 
v.   2J. 

21.  1914.     Bradford  E.  S.,  and  H.  S.  Gilbertson. 

Commission  form  vs.  city  manager  plan. 
American  city,  Jan.,  1914,  v.  10:  37-40. 
HT101.A4,  v.  10. 

22.  City  manager  plan.     American  municipalities, 

Jan.,  1914,  v.  26:  113-114.    JS39.C6,  v.  26. 
22,.  Marcosson,   I.   F.     Business-managing  a  city. 
Collier's,  Jan.  3,  1914,  v.  52:  5-6.    AP2.065, 
v.  52. 

24.  Driving  politics  out  of  Dayton.    Literary  digest, 

Jan.  24,  1913,  v.  48:  147-148.  AP2.L58,  v. 
48. 

25.  Coming  of  the  city  manager  plan.     National 

municipal  review,  Jan.,  1914,  v.  3 :  44-48. 
JS39.N3,  v.  3. 

26.  Gilbertson,  H.  S.    Government  and  administra- 

tion :  The  city  manager  plan.  National  mu- 
nicipal review,  Jan.,  1914,  v.  3:  115-116. 
JS39.N3,  v.  3. 

27.  James,  H.  G.     Defects  in  the  Dayton  charter. 


APPENDIX   E  297 

National  Municipal  charter.  National  mu- 
nicipal review,  Jan.,  1914,  v.  3:  95-97- 
JS39.N3,  v.  3. 

28.  The  commission  form  of  government.    World's 

work,  Jan.,  1914,  v.  27:  254-255.  AP2.W8, 
v.  27. 

29.  Progress  of  the  "City  Manager"  plan.    Ameri- 

can review  of  reviews,  Feb.,  1914,  v.  49: 
144-145.    AP2.R4,  v.  49. 

30.  Renwick,  William  W.    Democracy  chooses  an 

autocrat.  Technical  world,  Mar.,  1914,  v. 
21 :  13-19.     T1.T2,  v.  21. 

31.  Riddle,  Kenyon.    The  manager  plan  of  munici- 

pal government.  Engineering  news,  Apr.  16, 
1914,  v.  71 :  831-832.     TA1.E6,  v.  71. 

32.  City  managers.     (Dayton,  O.,  Springfield,  O.) 

Municipal  world,  Apr..  1914,  v.  24:  84. 
JS39.M78,  v.  24. 

33.  Adopts  City  manager  plan.    American  munici- 

palities, May,  1914,  v.  27:  51.  (Montrose, 
Colo.,  pop.  3,254.)     JS39.C6,  v.  27. 

34.  Chase,  Charles  P.    City  manager  plan  for  Iowa. 

American  municipalities,  May,  1914,  v.  27: 
58-60.     JS39.C6,  v.  27. 

35.  City  manager  plan  successful  in  Clarinda,  la. 

American  municipalities,  June,  1914,  v.  27: 
93-    JS39-C6>  v-  27- 


298  THE   CITY   MANAGER 

36.  Upson,  L.  D.    How  Dayton's  city-manager  plan 

is  working.  American  review  of  reviews, 
June,  1914,  v.  49:  714-717.    AP2.R4,  v.  49. 

37.  Waite,  Henry  M.     "The  city  manager  plan": 

how  it  operates  in  Dayton,  O.  Municipal 
journal,  N.  Y.,  June  4,  1914,  v.  26:  822-823. 
TD1.M95,  v.  26. 

38.  City  manager  plan — the  application  of 

business  methods  to  municipal  government. 
American  city,  July,  1914,  v.  11:  n-13. 
HT101.A5,  v.  11. 

39.  Kressly,  Paul  E.     The  city  manager.    Munici- 

pal engineering,  July,    1914*  v.  47:   15-18. 
JS39.C6,  v.  47. 
^o.  Childs,  Richard  S.    Commission  manager  plan. 
Municipal  Journal,  N.  Y.,  July  2,  19 14,  v. 
37:11. 


INDEX 


Accountant,  city,  in 
Accounting  procedure,  112 
Administrators,  profes- 

sional, 2;  practical,  7 
Alderman,  42 
Amateurs   v.   professionals, 

7 

America,  history  repeats  it- 
self in,  31 

American  people,  credit  for 
idea  due,  24 

Ashburner,  Chas.  E.,  career 
of,  80;  first  city  manager 
for  Springfield,  80;  first 
municipal  experience  of, 
in  Staunton,  80;  in  Sum- 
ter, N.  C,  81 

Ballot,  short,  6,  40;  na- 
tional short  ballot  or- 
ganization, 170 

Boards,  civil  service,  64; 
in  Dayton,  66;  rules  of, 
66;  records  of,  66;  com- 
pensation of  members  of, 
67;  unclassified  list  of, 
67;  who  compose,  67; 
compensation  of,  in 
Springfield,  68 

Boards,  miscellaneous,  64; 
consulting,  68;  advisory, 


69,  70;  city  plan,  in  Day- 
ton, 71 

Bond  issues,  table  on,  12 

Bruere,  255 

Bryce,  Rt.  Hon.  James,  36 

Budget,  scientific,  10;  pre- 
liminary procedure  in 
enactment  of,  61 ;  five 
fundamental  objects  of, 
114;  object  of,  in  Day- 
ton, 115;  procedures,  123 ; 
procedures,  vital  elements 
of,  123. 

Biirgermeister,  duties  of, 
25;  term  of  office  of,  26; 
salary  of,  26;  powers  and 
duties  of,  27 

Burke,  Edmund,  155 

Burton,  Senator,  41 

Business,  private,  and  city 
government,  47 

Charges,  against  adminis- 
tration, 6 

Checks  and  balances,  old 
system  of,  2>7 

Cities  under  150,000  popu- 
lation, 142 

City,  and  national  party,  di- 
vorce of,  36 ;  rise  of  new, 
8;  short  ballot  reform  in, 


299 


300 


INDEX 


40;  unification  of  new, 
42,  43 

City  government,  German, 
9;  laisscz  fairc,  spirit  of, 
40;  and  private  business, 
47;  new  division  of  pow- 
ers in,  59;  publicity  in, 
59;  simpler  financial  sys- 
tems in,  60;  public  hear- 
ings, 50. 

City  government  by  com- 
mission, 268-279 ;  report 
of  National  Municipal 
League  on,  268;  major 
features  of,  268;  a  rela- 
tive success,  268;  short 
ballot  in,  269;  non-parti- 
san ballot  and,  271 ;  in- 
itiative and  referendum- 
by-protest  and,  271 ;  re- 
call and,  271 ;  abolition 
of  ward  lines  and,  271 ; 
auditor  in,  272;  civil  ser- 
vice commission  in,  272; 
Mayor's  veto  in,  272;  ap- 
plicability of,  to  different 
sized  cities,  273;  election 
at  large  in,  273;  size  of 
commission  in,  in  case  of 
large  cities,  275;  indi- 
vidual commissioners 
each  executive  heads  of 
departments  in,  276;  in 
cities  of  over  25,000  pop- 
ulation, 278 

City  hall,  38 


City  manager,  4 ;  idea  of,  8 ; 
selection  of,  and  by 
whom,  62,  82;  selection 
of,  in  Dayton,  63;  selec- 
tion of,  in  Springfield, 
63;  selection  of,  in  Hick- 
ory? 63 ;  creation  of  office 
of,  j6',  an  appointive  offi- 
cer, 76;  qualification  of, 
76;  personal  qualifica- 
tions of,  78;  enumerated 
qualifications  of,  78; 
amount  of  salaries  of,  82 ; 
control  of  commission 
over,  83;  powers  of,  83, 
90,  91,  93;  powers  of,  in 
Springfield,  84;  a  mem- 
ber of  board  of  assess- 
ment, 92;  tenure  of  of- 
fice of,  93;  classes  ap- 
pointed by,  96;  statutes, 
170. 

City  manager  plan  of  mu- 
nicipal rule,  9;  of  Day- 
ton, 75;  advantages  and 
disadvantages  of,  255- 
262;  arguments  for,  259- 
262;  advantages  of,  sum- 
marized, 262;  arguments 
against,  262;  advantages 
of  Springfield,  Ohio, 
charter  summarized,  264; 
advantages  of  Dayton, 
Ohio,  charter  summar- 
ized, 265;  cities  under, 
June  1,  1914,  281. 


INDEX 


301 


City  reform,  means  of  ac- 
complishment of,  40 

Civic  greatness,  4,  9 

Code,  Virginia  section  1038, 
2. 

Commission,  powers  of,  62; 
68;  personnel  of,  78;  de- 
termines salary  of  city 
manager,  81 

Commission  government,  of 
citizens,  9;  Royal,  1833, 
31 ;  new,  51 ;  old  form  of, 
3,  42 ;  error  in,  as  to  com- 
missioners, 52 

Commissioners,  method  of 
election  of,  54;  qualifica- 
tions of,  under  various 
charters,  54;  term  of  of- 
fice of,  55 

Conference  of  Ohio  cities, 

77 
Constitutional     Convention 

of  Ohio,  1912,  170 
Continent,  9 
Councilmen,  electing,  from 

wards,  43 
Crosby,  Hon.  John,  3 

Dayton,  8,  9;  business 
problem  of,  9;  fire  and 
police  in,  10;  bonds  of, 
11;  Bureau  of  Research 
in,  11,  12,  127,  132,  282; 
financial  condition  of, 
prior  to  charter,  11 ;  in- 
creased debt  of,  13;  mu- 


nicipal money  of,  13; 
funds  of,  unreachable, 
13;  public  corporation 
of,    14;    official    reports, 

Dayton  plan,  city  manager 
in,  15,  75;  initiative  and 
referendum  in,  45;  recall 
in,  47;  percentage  for  re- 
call in,  49;  commission- 
ers in,  term  of  office  of, 
55 ;  powers  and  duties  of 
mayor  in,  56;  recall  of 
mayor  in,  51 ;  salaries  of 
commissioners  in,  57; 
old  plan  in,  58;  civil  ser- 
vice boards  constituted 
in,  71 ;  city  plan  board 
in,  71 ;  city  manager  plan, 
75;  powers  of  city  man- 
ager in,  85;  location  of 
appointive  power  in,  95; 
faults  of  charter  in,  109; 
fire  and  police  depart- 
ment in,  109;  financial 
department  in,  109;  bud- 
get in,  115;  treasurer  in, 
115;  purchasing  agent  in, 
116,  117,  118;  provision 
for  money  in  treasury  in, 
121;  1913  auditor's  re- 
ports in,  130,  131;  ordi- 
nary and  extraordinary 
expenses  in,  131;  income 
for  1914  budget  in,  132, 
136;  classification  of  bud- 


302 


INDEX 


get  in,  137;  details  of 
budget  in,  137;  adminis- 
tration of  cost  in  budget 
in,  136;  operation  of 
costs  in  budget  in,  136; 
maintenance  of  costs  in 
budget  in,  137;  capital 
outlay  in  budget  in,  137; 
advantages  of  budget  in, 
139;  financial  division  of 
manager's  report  in,  139; 
department  of  finance,  ac- 
counting division  in,  140, 
141 ;  inventory  of  city 
property  in,  140;  over- 
drafts impossible  in,  141 ; 
bookkeeping  eliminated 
in,  141 ;  city  budget  im- 
proved in,  141 ;  more  rev- 
enues from  licenses  in, 
141 ;  division  of  receipts 
and  disbursements  in, 
142;  all  money  in  one 
fund  in,  142;  bills  paid 
by  check  in,  142;  bal- 
ances returned  to  sinking 
fund  in,  142;  errors  cor- 
rected in,  142;  division 
of  purchasing  in,  143; 
purchases  regulated  in, 
143;  prices  reduced  in, 
143 ;  supplies  standard- 
ized in,  143;  bills  dis- 
counted in,  143;  samples 
of  saving  in,  143;  reduc- 
tion of  debt  in,  144;  sav- 


ing  interest   charges   in, 
144 
Deal,     dollar     for     dollar, 

37 

Department,  difficulties  of 
connections  of  divisions 
of,  and  commissions,  98; 
commissioners  as  head  of, 
98;  in  city  manager  plan, 
102;  fire  and  police,  109 

Department,  health,  10; 
waterworks,  102;  street, 
102;  treasurer's,  102;  law, 
102;  director  of  law,  103; 
duties  of  director  of  law, 
103 ;  opinion  rendered  by 
director  of  law,  103; 
suggested  division  of, 
law,  104;  public  service, 
104;  public  service,  pur- 
pose of,  105;  public  ser- 
vice, scope  of  duties  of, 
105;  public  welfare,  106; 
public  welfare,  scope  of, 
106;  legal  aid  bureau, 
107;  public  welfare,  pow- 
ers of,  107;  public  safety, 
108;  financial,  no,  112; 
financial,  simplicity  and 
uniformity  of,  no,  III. 

Des  Moines  plan,  98 

Disasters,  9 

Dresden,  26 

Education,  board  of,  21 
Electorate,  power  of,  36 


INDEX 


303 


Emory,  Henry  Crosby,  194 
Employees,   political   activ- 
ity of  city,  67 ;  method  of 
hiring,    92;    in    Hickory, 
N.  C,  method  of  hiring, 

93 

English  cities  in  18th  cen- 
tury, 31 

English  municipality,  chief 
legal  officer  of,  32;  pow- 
ers of  councils  in,  32 

English  town  clerk,  31 ; 
,powers   of,    32;    salaries 

of,  33 

Equal  pay  for  equal  work, 
65;  adjustment  of  sal- 
aries to  quality  of  work 
in,  65 

Europe,  4,  24 

Executives,  controlled,  3, 
84 

Finance,  provisions  for 
funds,  120;  certification 
of  funds,  120;  money  in 
treasury,  121 ;  measures, 
123 ;  income  classification, 
124;  taxes  :  general, 
liquor,  traffic,  cigarettes; 
licenses :  vehicle,  venders, 
theaters  and  shows,  dogs; 
permits:  water  and  sew- 
er, others;  excise  taxes: 
street  railways,  electric 
company;  markets;  city 
scales;      parks;      public 


buildings;  worknouses; 
municipal  courts;  interest 
on  deposits,  125 ;  public 
ways,  miscellaneous :  fire 
and  police,  inspection  of 
food  products,  refund  arc 
lights,  sweeping  tracks, 
refunds,  cuts  and  pay- 
ments, temporary  loans, 
waterworks  income,  esti- 
mated balances;  objects 
of  expenditure  classifica- 
tion, 125 ;  personal  ser- 
vice :  salaries  and  wages, 
fees  and  commissions ; 
transportation  service, 
126;  communication  ser- 
vice ;  special  contractual 
service;  supplies  and  ma- 
terial; purchase  of  land, 
structures  and  equip- 
ment, 127;  fixed  charges 
and  contributions,  advan- 
tages of  classification  of, 
127;  official  report,  130; 
ordinary  and  extraordi- 
nary expenses,  131 

Foreign  ideas,  9 

French  city  government. 
34;  permanent,  profes- 
sional executives  of  de- 
partments of,  34;  le  sec- 
retaire dc  moire  in,  34 

Galveston,  3,  4,  5 
Galveston  plan,  99;  evil  of 


304 


INDEX 


dual  functions  in  com- 
mission under,  ioo 

German  cities,  24;  expert 
administrator  in,  25;  mu- 
nicipal officials  of,  25; 
magistrat  or  Biirgermeis- 
ter  of,  25 ;  administra- 
tive council  of,  25;  city 
government  departments 
of,  28;  council  of,  30; 
municipal  budget  of, 
30. 

Gladden,   Dr.   Washington, 

77 

Hickory,  N.  C.,  54;  com- 
missioners in,  term  of  of- 
fice of,  55;  city  manager 
in.  63;  powers  of  city 
manager  in,  87;  city  man- 
ager plan  in,  88 ;  removal 
power  in,  94 

Hunt,  Mayor,  127 

Ideas,  progressive,  final  re- 
sults of,  50 

Indictment,  6 

Initiative,  43;  in  city  gov- 
ernment, 44;  percentage 
in  Dayton,  45;  percent- 
age in  Springfield,  45 

Initiative  and  referendum, 
6,  45 

Jefferson,  Thomas,  146 

Labor,     attitude     of,     and 


Socialism  toward  com- 
mission manager  plan, 
155;  laboring  men 
elected,  156;  laboring 
man  in  Dayton  commis- 
sion, 157;  laboring  man's 
usefulness  in  new  gov- 
ernment, 158;  laboring 
man's  advantage  in  new 
government,  159;  in 
Springfield  campaign, 
160;  on  commission  at 
Springfield,  161;  attitude 
of,  in  Dayton,  161 ;  reso- 
lution of  organizations, 
in  Dayton,  162;  repre- 
sentation of,  in  Dayton, 
167;  Socialism  in  Day- 
ton, 167;  Socialists'  atti- 
tude in  Cleveland  and 
Sandusky,  169 

La  Grande,  Ore.,  54;  com- 
missioner's term  of  office 
in,  55 ;  method  of  appoint- 
ment of  general  manager 
in,  64;  power  of  general 
manager  in,  89;  whom 
general  manager  in,  ap- 
points, 94 

Legislators,  powers  of,  68 

Leipsic,  26 

Library  of  Congress  (Di- 
vision of  Bibliography, 
H.  H.  B.  Mayer,  Chief 
Bibliographer),  292 

Lockport,  N.  Y.,  plan,  city 


INDEX 


305 


manager  in,  21 ;  adminis- 
trative department  in,  21 ; 
general    and   special    or- 
ders by  resolution  in,  21 ; 
report  of  condition  of  de- 
partments  in,   21 ;   board 
of    estimate    and    appor- 
tionment in,  21 ;  board  of 
audit    in,    21 ;    proposal, 
22;  powers  of  city  man- 
ager  in,   23;   books   and 
vouchers     in,     24;     first 
complete    city    manager 
plan  proposed  in,  24;  an- 
alysis of,  plan,  171,  188; 
short  title  of,  171;  term 
city    in,    172;    corporate 
powers  of,  172;  applica- 
tion  of   this   act   under, 
172;  adoption  of  this  act 
under,    172;    reorganiza- 
tion under  this  act,  172; 
first   election   under  this 
act,  172;  term  of  first  city 
council,    172;    period    of 
reorganization,    173;    re- 
distribution of  corporate 
functions,     173;    restric- 
tions on  such  redistribu- 
tions, 173;  succession  of 
functions,    173;    no   new 
corporate  power,  173 ;  or- 
ganization within  depart- 
ments,   173;    special   au- 
thority  to   borrow,    173; 
election  and  recall  of  of- 


ficers, 173;  the  city  coun- 
cil, 174;  citizen's  motion, 
176;  mayor,  180;  city 
manager,  183,  187;  de- 
partment of  education, 
186;  initiative  and  refer- 
endum, 187;  duties  of 
city  manager,  188;  salary 
of  city  manager,  188 

Lockport,  N.  Y.,  proposal, 
19;  legislature  of  New 
York  and,   19 

Log-rolling,  42 

Lynchburg,  Va.,  80 

Magazine  articles,  291,  292, 
294,  295,  296,  297,  298 

Magistrat,  character  of,  28 ; 
power  of,  29;  character 
of  meeting,  31 

Manager,  general,  of  pri- 
vate corporation,  6 

Measures,  emergency,  68 

Miami  valley,  8 

Military  rule,  9 

Moore,  James  Basset,  1 

Municipal  administration, 
next  to  ultimate  phase  of, 

7 

Municipal  business,  regen- 
erative,  15 

Municipal  government, 
European  method,  9 

Municipal  management,  fal- 
lacies in  system  of,  1 ;  old 
school  of,  73 


306 


INDEX 


Municipal  rule,  arguments 
for  old  form  of:  respon- 
sibility to  popular  will, 
256;  wards,  256;  separa- 
tion of  powers,  257;  mi- 
norities,   258;    essentials, 

259 
Munro,  Prof.,  29-34 

National  Municipal  League, 
1908  investigation  by,  of 
appointees  for  education 
of  officials,  150;  1912  in- 
vestigation by,  150 

National  party  and  city,  di- 
vorce of,   36 

Officials,  education  of,  146; 
problem  of,  146;  need  of, 
148;  methods  of,  148;  ef- 
forts of  institutions  to- 
ward, 149;  courses  for, 
149;  late  progress  in,  150; 
problem  of  systematic 
course  in,  151 ;  in  en- 
gineering, 151;  in  law, 
151;  in  medicine,  151; 
in  architecture,  151 ;  in 
business  administration, 
151;  in  finance,  151; 
graduate  work  in,  151; 
probable  course  in,  151; 
degrees,  153;  practical 
work  in  schools  in,  153; 
practical  experience  in, 
153 


Officials,  subordinate,  ap- 
pointed   by    Commission, 

63 
Old  government  in  Dayton, 

faults  of,  10 
Old  spirit  of  public  officers, 

48 
Order,  old,  3,  6;  new,  3 
Ordinance,  public  hearings 

on  tentative  budget,  61 ; 

publication  of,  62;  scope 

of,  69 

Parties,  36;  emblem  at 
head  of  ballot,  41 

Payroll,  certification  of,  67 

Phoenix,  Ariz.,  54;  method 
of  appointment  of  Gen- 
eral Manager,  64;  whom 
general  manager  ap- 
points. 

Plan,  essence  of,  4;  prelim- 
inary, 16;  first  American 
manager,  16;  Staunton, 
16;  Galveston,  16;  city 
manager,  3,  42;  of  Day- 
ton, 75;  faults  of,  reme- 
died, 52,  101 

Pledge  card,  287;  initiative, 
referendum,  protest  and 
recall  requested  in,  287 

Points  of  view,  various,  223- 
254;  of  National  Munic- 
ipal League  Supplemen- 
tary Report,  Toronto,  No- 
vember, 1913,  223;  com- 


INDEX 


307 


mission  manager  vari- 
ation, 225;  definition  of 
commission  manager 
plan,  225 ;  history  of  com- 
mission manager  plan, 
225;  comments,  226;  ma- 
jority report,  227;  minor- 
ity report,  Ernest  S.  Brad- 
ford, 232;  Foulke,  Wm. 
Dudley,  234;  Ashburner, 
address  of,  22,7',  Waite, 
H.  M.,  statement  of,  243 ; 
Dayton  charter  faults, 
Prof.  H.  G.  James,  249; 
counter-arguments  to  ob- 
jections to  Dayton  char- 
ter, 253 

Powers,  of  commission,  62; 
limited  appointive,  62; 
legislative,  62;  of  city 
manager,  83,  90,  91,  92; 
of  director  of  finance,  in 

Prendergast,  Wm.  A.,  123 

Probationary  period,  64 

Professional  idea,  2;  in 
English  city  government, 
32;  in  France,  34 

Prussian  cities,  24 

Purchase  of  supplies,  old 
system  for,  118;  evils  of, 
119;  new  systems  of,  ad- 
vantages of,  120 

Purchasing  agent,  duties  of, 
116;  advantages  of,  117; 
payment  for  supplies  to, 
1 17  J    city    manager    ap- 


proves action  of,  118;  in 
Staunton  and  Springfield, 
118 

Question,  Dayton,  9 

Recall,  6;  in  Dayton,  47; 
dangers  of,  48;  period  of 
immunity  from,  49 ; 
Springfield  provision  con- 
cerning, 50 

Referendum,  45;  details  of 
plans,  46;  percentage  in 
plans,  46 

Results,  194-222;  financial 
savings,  195 ;  economical 
reorganization  of  depart- 
ments, 196;  character  of 
work  of  officials,  197; 
financial  reorganization, 
197;  public  works,  198; 
purchasing  agent  savings, 
199;  health  department, 
199;  new  method  of 
financing  bond  issue,  199; 
report  of  results  in  Day- 
ton, 201 ;  staff  confer- 
ences, 201 ;  expenditures 
limited  by  income,  201 ; 
eight-hour  day,  201; 
grade  elimination,  201 ; 
building  code,  202 ;  better 
street  car  service,  202; 
civic  plan  board,  202;  civ- 
ic music,  202;  renaming 
and  renumbering  streets, 


308 


INDEX 


202 ;  life-saving  equip- 
ment, 202 ;  crossing  block- 
ades, 202 ;  Civic  Workers' 
League,  203 ;  traffic  rules, 
203 ;  additional  water, 
203 ;  garbage  removal, 
203;  sewers,  203;  park 
system,  204 ;  petty  offend- 
ers, 204;  Department  of 
Law,  204;  settlement  of 
complaints,  204 ;  loan 
sharks'  campaign,  204; 
parole  of  workhouse  pris- 
oners, 205;  mail  order 
frauds,  205;  home  rule, 
205 ;  general  statement, 
205;  salary  saving  of 
$27,000,205;  office  of  Di- 
rector, 205 ;  Department 
of  Public  Service,  205; 
expediting  public  works, 
206;  permits  simplified, 
206;  future  refuse  dis- 
posal, 206;  Division  of 
Engineering,  206;  inves- 
tigation of  sewers,  206; 
efficient  street  inspection, 
206;  Island  Park  bridge, 
207;  $12,000  saving  on 
Valley  Street  bridge,  207; 
Division  of  Streets,  207; 
street  oiling,  207;  refuse 
collection,  207;  garbage 
collection,  207;  dead  ani- 
mals, 207;  street  flushing, 
208;    for  cleaner  streets, 


208;  street  repairs,  208; 
service  cuts,  209;  im- 
provement of  dumps, 
209;  Division  of  Water, 
209;  increased  water 
pressure,  209;  additional 
water  supply,  209;  im- 
proved pumping,  210; 
plans  for  water  improve- 
ments, 210;  Dayton  View 
supply,  210;  reduced  coal 
consumption,  211;  meter 
repairs,  211 ;  a  water- 
works superintendent, 
211;  Division  of  Public 
Lands  and  Buildings, 
211;  municipal  garage, 
211;  alterations  in  City 
Building,  212;  saving  on 
heat,  212;  Department  of 
Public  Welfare,  212;  Di- 
vision of  Health,  212; 
full  time  health  officer, 
212;  new  quarters,  212; 
reorganization  of  health 
work,  212;  public  health 
nursing,  213;  vacant 
property,  213;  insanitary 
conditions,  213;  lower 
baby  death  rate,  213; 
three  public  clinics,  214; 
Division  of  Parks,  214; 
McCabe's  Park,  214;  Mc- 
Kinley  Park,  214;  Island 
Park,  214;  community 
gardens,  215;  Division  of 


INDEX 


309 


Recreation,  216;  reor- 
ganization of  playground 
work,  216;  number  of 
playgrounds  doubled,  216; 
new  equipment  secured, 
216;  play  tournaments, 
217;  Division  of  Correc- 
tion, 217;  workhouse 
overhauled,  217;  police 
station,  218;  cost  records 
installed,  217;  work- 
house  labor,  218;  munici- 
pal lodging  house  estab- 
lished, 219;  the  city  gar- 
den, 219;  Division  of  Le- 
gal Aid,  219;  free  legal 
advice,  219;  Division  of 
Charities,  220;  city  in- 
firmary abolished,  220 ; 
report  of  public  safety, 
220;  investigation  of  fire 
and  police  service,  220; 
report  of  police,  221 ; 
more  police,  221 ;  women 
probation  officers,  221 ; 
school  for  police,  221 ; 
uniforms  and  drills,  221  ; 
traffic  rules,  22  t  ;  report 
of  fire,  221 ;  fire  preven- 
tion, 221 ;  service  tests, 
222 ;  motor  apparatus,  222 
Roosevelt,  Theo.,  36 

Shame  of  a  city,  11 

Solution,  7 

Springfield,  Ohio,  plan,  113; 


initiative  percentage,  45; 
drafting  of  initiative  or- 
dinance in,  45 ;  recall  in, 
50;  commissioners  in, 
term  of  office  of,  55;  se- 
lection of  city  manager 
in,  63;  compensation  of 
civil  service  boards  in, 
68;  provision  for  advi- 
sory boards  in,  70;  pow- 
ers of  city  manager  in, 
84;  whom  appointed  by 
city  manager,  94;  pur- 
chasing agent,  118 

Staunton,  Va.,  population 
of,  16;  controlled  execu- 
tive plan  in,  20 

Staunton,  Va.,  plan,  fi- 
nance, education  and  leg- 
islation in,  17;  manager 
in,  salary  of,  17;  super- 
visor of  department  super- 
intendents in,  17;  pur- 
chasing agent  in,  17,  118; 
powers  of  manager  in,  18; 
expenditures  in,  18;  presi- 
dent of  common  council 
in,  18;  productive  saloon 
license  in,  19;  city  man- 
ager idea  in,  19 

System,  merit,  10;  of  pat- 
ronage, 42;  municipal  ju- 
diciary, 63 

Tables  and  charts,  12 
Taney,  Chief  Justice,  170 


3io 


INDEX 


Taylor,  Frederick  Winslow, 

73 

Taylor,  Hannis,  98 

Test,  the,  38:  ultimate,  of 
fitness  as  candidate,  38 

Treasurer,  city,  115 

Treaty-making  of  faction- 
alism, 42 

Trustees,  of  sinkipg  fund, 
67;  of  public  trusts,  71 

Turning  point,  the,  9 

University,  Harvard,  Bu- 
reau of  Research  of,  149- 
150;  Graduate  School  of, 
149 

University  of  Texas,  Bu- 
reau of  Research  of,  150; 
School     of     Government 


of,  150;  Bureau  of,  under 
James,  Herman  G.,  150 
University  of  Virginia,  147 

Virginia  Statute,  189-192 ; 
general  councilmanic 
plan  in,  189;  modified 
commission  plan  in,  190; 
city  manager  plan  in, 
191 ;  provisions  applicable 
to  each  plan  in,  192 

Waite,   H.   M.,   City   Man- 
ager, 14;  career  of,  79 
Wards,  42;  abolition  of,  54 
Washington,  George,  6 
Wilson,  Woodrow,  I 
Woodruff,   Clinton   Rogers, 
5i 


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